HomeMy WebLinkAboutCS 15-24Report to
Executive Committee
Report Number: CS 15-24 Date: June 10, 2024
From: Laura Gibbs Director, Community Services
Subject: Draft Recreation & Parks – Ten Year Plan and Arena Strategy
-File: A-1440-001
Recommendation:
1. That Council receive the draft Recreation & Parks - Ten Year Plan, as set out inAttachment 1, for information;
2. That Council endorse the Arena Strategy, as set out in Attachment 2; and,
3.That the appropriate officials of the City of Pickering be authorized to take the necessaryactions as indicated in this report.
Executive Summary: The purpose of this report is to share the draft Recreation & Parks - Ten Year Plan (the “Plan”) for information and to present the final Arena Strategy for
endorsement.
As per Council Resolution #218/23, Monteith Brown Planning Consultants Inc. was retained on
June 5, 2023, to undertake the Recreation & Parks - Ten Year Plan, and Arena Strategy for the City of Pickering.
The former Recreation & Parks Plan was completed in 2017, and much has changed since that time. The new Ten Year Plan (2024-2034) will inform and guide the City’s future parks and
recreation needs and support key decisions on future infrastructure, programs and service delivery. The Plan is designed to address changes in current and future community demographics, changing recreational behaviour patterns and trends, aging community
infrastructure, and future areas for growth and development. The scope of the Plan includes:
(i)the development of indoor recreation facilities such as community centres, arenas, pools,
senior/youth spaces, and sport facilities; (ii) outdoor recreation amenities such as sport fields,sport courts, playgrounds, splash pads, skate parks and community gardens; (iii) parkland,including acquisition to support future growth; and (iv) recreation services such as drop-in and
registered programs, partnerships, community development, and related policies.
The process included the development of a comprehensive Arena Strategy to address ice usage and facility needs. On April 2, 2024, Council received the draft Arena Strategy and on April 26, 2024, Council approved Resolution #461/24, receiving the Arena Strategy for
information. Input on the draft Arena Strategy was sought in May 2024. The Arena Strategy was posted on Let’s Talk Pickering from April 26 through May 23 with an option for residents to
share thoughts and provide comments. An Open House was held on May 7 at Don Beer Arena
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during a hockey try-out evening to engage with ice users. The Arena Strategy and consultation opportunities were promoted widely on the City’s web page and shared with ice user groups
and their members. Signage was put up in the two arena lobbies, and a social media campaign was executed through the City’s social media channels.
The draft Plan is now complete and is included as Attachment 1 for information. Additional consultation will take place on the draft Plan.
The Arena Strategy is now complete and is included as Attachment 2 for endorsement.
Relationship to the Pickering Strategic Plan: The recommendations in this report respond
to the Pickering Strategic Plan Priorities to Advocate for an Inclusive, Welcoming, Safe &
Healthy Community, to Advance Innovation & Responsible Planning to Support a Connected, Well-Serviced Community, to Strengthen Existing & Build New Partnerships; and to Foster an Engaged & Informed Community.
Financial Implications: There are no cost implications associated with this report. As
strategic action items within the Arena Strategy move forward, those items requiring funding will be further evaluated and brought to Council for its consideration. Larger projects will be incorporated into the City’s Capital Budget Forecast.
Discussion: The purpose of this report is to share the final draft Recreation & Parks -
Ten Year Plan (the “Plan”) for information prior to its release to the public for a final phase of community consultation, as well as to seek Council endorsement on the Arena Strategy.
The Plan contains 100 recommendations, while the Arena Strategy contains a total of eight recommendations.
An extensive Community Consultation process was launched on both The Plan and the Arena Strategy in November and December 2023. The engagement campaign included a City-wide survey, two public Open Houses, community pop-ups at various locations in the City, a youth engagement initiative in collaboration with the School Boards, key stakeholder interviews, and
Sport/Culture User Groups Feedback sessions. Over 2,200 surveys were completed providing invaluable feedback throughout the process. The entire campaign reached over 15,000 people
and was highly successful in engaging the community in the planning process.
The Plan will undergo further public and stakeholder engagement from June 26 to July 24,
2024, through Let’s Talk Pickering, and two Open Houses will be held on July 9 and 17, 2024, from 5:30 pm. to 9:30 pm. in the Chestnut Hill Developments Recreation Complex (CHDRC) lobby. The final Plan will be brought back to Council in September 2024.
1. The Plan 1.1 Key Themes
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Feedback from residents included the following key messages:
• Recreation and parks are critical to residents’ well-being.
• New indoor spaces and programs are needed to keep pace with a growing population, especially pools and gymnasiums to support the Seaton community.
• Demand is increasing for outdoor recreation opportunities such as trail use, racquet sports (tennis/pickleball), skateboarding, basketball, and outdoor skating.
• Youth are seeking more after-school recreation and arts-based activities in
accessible/convenient locations.
1.2 Draft Plan Recommendations
The Plan contains 100 recommendations. The key recommendations are listed below:
1.2.1 Indoor Recreation Facilities
• Continue to plan for the design and development of the new Seaton Recreation
Complex & Library for 2029. Amenities to be included are a six to eight lane, two
tank aquatic centre, triple gymnasium, two-pad arena, indoor track, fitness centre and studio, multi-use program rooms, administration area, destination playground, skate spot, and multiuse sport courts.
• Initiate planning for the long-term revitalization of the CHDRC and consider
relocating the indoor tennis courts to another location, possibly with an air-supported dome.
• Introduce youth programming and space within the CHDRC.
• Consider constructing the proposed Seniors & Youth Centre in Pickering’s City Centre prior to 2034.
• Gradually reduce the number of community halls through attrition and/or improvements to nearby facilities; no new community halls are recommended.
• Examine future programming needs and potential capital replacement of the Dunbarton Indoor Pool.
• Prepare a business case to repurpose one racquetball court at the CHDRC for other in-demand uses i.e. group fitness space.
• Provide one indoor pickleball court for every 10,000 residents, with a target of 15 indoor courts by 2034. The City will be able to meet its current target of 10 indoor
courts through upgrades at the Pickering Soccer Centre (up to 6 courts) and CHDRC (4 courts) and also its 2034 target (15 courts) through the development of
the Seaton Recreation Complex & Library.
1.2.2 Outdoor Recreation & Parks Facilities
• Continue to advance park development in Seaton and growing neighbourhoods to address growth-related needs (playgrounds, splash pads, courts, etc.).
• Earmark the Greenwood Conservation lands and future Seaton district park as locations for multiple sport fields.
• Repurpose selected surplus ball diamonds in south Pickering.
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• Develop up to 19 new outdoor pickleball courts by 2034, including dedicated courts in Diana, Princess of Wales Park, Dave Ryan Community Park, and another location in Seaton.
• Continue with plans for a refrigerated skating rink/water feature within City Centre
Park.
• Consider a covered multi-use pad in Claremont Memorial Park to support extended use for floor sports (ball hockey, skating, etc.), camps, and events.
• Work with TRCA to enhance Petticoat Creek Conservation Park as a signature park
site for large events/festivals.
1.2.3 Parkland
• Adjust the City’s parkland classification system (e.g. new park types in mixed use
areas) and parkland dedication requirements identified in Bill 23.
• Adopt a minimum City-wide parkland provision target of 1.5 hectares per 1,000 residents through to 2034.
• Prepare a Parkland Acquisition Strategy to enhance current and future community access to parks; target the priority areas identified in the Plan.
• Establish planning guidelines to evaluate proposals for privately-owned public spaces and strata parks and the need for appropriate legal agreements.
• Adopt a “Parkland First” approach that prioritizes parkland conveyance over cash-in-lieu of parkland; actively pursue the direct purchase of land in priority acquisition
areas as well as unserviced land with future parkland potential.
• Continue to expand and connect the recreational trail network.
1.2.4 Recreation Services
• Increase staffing levels by providing targeted leadership courses in aquatics,
programs, and camps, and reach out to area school boards to assist.
• Establish strategies to assist not-for-profit groups in the recruitment, training, and retention of volunteers to support community-led recreation/sport programs.
• Seek sponsors and sustainable funding to reintroduce the Swim to Survive program.
• Support the sport and recreation needs of Indigenous Peoples through collaboration
with this community and supporting agencies.
• Ensure that all public spaces are safe and welcoming spaces for all users and staff,
including under-represented populations.
• Develop a staff training and development continuum that identifies the necessary knowledge, skills, and competencies for each job type to support staff development and improve readiness for succession planning.
• Develop a Ten-Year Staffing Plan that reflects approved levels of service and
changes in population-driven service requirements.
2. Arena Strategy
In addition to the Plan, the consultants were retained to conduct a comprehensive Arena
Strategy (Attachment 2). The purpose of this specialized study was to examine the condition of
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the City’s ice infrastructure, review current service levels and usage patterns, and review arena needs over a ten-year time horizon.
Throughout the process, a number of themes became clear and a total of eight recommendations were identified.
2.1 Key Themes
• Arena investment is a lower priority for many Pickering residents.
• User groups are satisfied with current service levels.
• Aging infrastructure at Don Beer Arena is a growing concern.
• The pandemic had a negative impact on ice sport participation.
• Organized ice sports are moving from local to regional.
2.2 Arena Strategy Recommendations
• Begin planning to replace Don Beer Arena (three pads) with two new ice pads within the
Seaton community no later than 2029 – the Seaton Recreation Complex & Library is the preferred site for the new arena. Once a new twin pad opens, the Don Beer Arena site may be disposed of as per the City’s Facilities Renewal Study, with proceeds used to
offset the cost of replacement infrastructure.
• Maintain Don Beer Arena until such time as the new twin pad facility is open.
• Continue to operate and invest in two ice pads at CHDRC.
• Consider longer-term arena needs (post 2034) with a focus on Northeast Pickering.
• Lower the ice service provision from one ice pad per 500 registered youth participants
to 400 to support current and future ice surface needs.
• Based on current demand, plan for a provision for four ice pads in 2024 and five ice pads by 2043.
• Continue to promote recreational and drop-in programs at CHDRC.
• Work with the Town of Ajax to ensure that allocation practices and amounts of ice are
consistently applied in both communities.
3. Community Engagement Process
An extensive community engagement campaign was launched in November and December,
2023 for the Plan and Arena Strategy which included a City-wide survey (1,374), two public open houses (210), community pop-ups at various locations in the City (570), a Youth engagement initiative in collaboration with the School Boards (827), key Stakeholder interviews, and Sport/Culture User Groups Feedback sessions (26). Over 2,200 surveys were
received and even greater input was sought through discussions and interactions with many residents, stakeholders, and user group members. In total, over 15,000 people provided input.
3.1 Consultation on the Arena Strategy
Input on the Arena Strategy was sought in May 2024. The Arena Strategy was posted on Let’s
Talk Pickering from April 26 through May 23, 2024, with an option for residents to share thoughts and provide comments. An Open House was held on May 7, 2024 at Don Beer Arena
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during a hockey try-out evening, to engage with ice users. The Arena Strategy and consultation opportunities were promoted widely on the City’s web page and shared with ice
user sport groups and their members. Signage was put up in the two arena lobbies, and a social media campaign was executed through the City’s social media channels.
A total of 48 people viewed the Arena Strategy online and staff interacted with approximately 50 residents/stakeholders during the Open House. A total of 13 comments were received. Ice user groups shared the following comments:
•A new arena site in Seaton will reach more families and is more accessible to the
community.
•Include space for a pro shop/skate sharpening service.
•Include a walking track around the arena, a pool with slide/kids area, and include anaccessible/priority seating area in the arena for seniors/persons with disabilities.
•Ensure that the new Seaton Arena is built with modern/new standards and combinedwith other recreational uses, such as pools, gym, running track.
•Provide space for ball hockey (two pads) and women’s-only sports.
•Agree with direction of building a new arena to serve the community but would like to
see new arena built with four pads, not two, or build a third pad at Chestnut Hill
Development Recreation Complex. Build NHL regulation-sized rinks to supporttournament hosting. Need space for floor hockey, lacrosse, dodgeball, and indoorpickleball.
•Need more sports for toddlers and young kids – swimming programs and competitive
sports (hockey/rollerblading), better parks for young kids with interactive structures.
•Provide space that is convertible for alternate use and use year around i.e.: pickleball in
summer.
•Bring disability ice sports to Pickering, more casual gender-neutral ice sports, ensurerestrooms are universal/single stall facilities with open areas for hand washing.
•Concern was expressed that it is unrealistic to expect kids to play hockey during earlymornings during the week. Ice booking process should be easier for people wishing to
book time.
•Concern with the number of ice pads being reduced from 5 pads to 4 pads givenPickering’s population growth and the ability to meet demand, now but especially in thefuture. Ice time is at a premium, and the City should look to support more recreational
opportunities not limit them. The City should be adding more ice pads, not taking themaway.
As part of the Arena Strategy, staff and the consultants reviewed ice schedules for the five ice
pads currently available in Pickering. On a typical week at both Don Beer Arena and CHDRC
Arena there are between 35-45 available hours of prime-time ice. Staff have reached out to the
Town of Ajax to initiate a collaborative ice allocation process for the 2024/2025 season.
Subject to Council's approval, the recommendations outlined in the Arena Strategy will be used by staff to guide strategic planning and decision-making for ice facilities over the next several
years. The City remains committed to working with ice stakeholders to ensure that their annual
ice needs continue to be met and that ice usage continues to grow and flourish.
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4.Next Steps
Further consultation will occur in July 2024 to garner feedback from residents and key
stakeholders on the draft Plan. The Plan will be available on the Let’s Talk Pickering site from June 26 to July 24, 2024, to receive feedback and input. Two Open Houses will be held on
July 9 and 17, 2024 from 5:30 pm to 9:30 pm in the Chestnut Hill Developments Recreation Complex Lobby for those wishing to interact with staff in person and provide feedback on site. Feedback will be consolidated and brought back to Council in September.
Attachments:
1.Draft Recreation & Parks - Ten Year Plan
2.Arena Strategy
Prepared By: Approved/Endorsed By:
Original Signed By Original Signed By
Marilou Murray Laura Gibbs MBA, MSc. Manager of Community Services Director of Community Services
Administration & Strategic Initiatives
LG:mm
Recommended for the consideration of Pickering City Council
Original Signed By
Marisa Carpino, M.A.
Chief Administrative Officer
Attachment 1 to Report CS 15-24
City of Pickering
Recreation & Parks – Ten Year Plan
(2024 – 2034)
DRAFT May 2024
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) i
Table of Contents
Acknowledgements ................................................................................. iii
Executive Summary .................................................................................. v
1. Introduction ........................................................................................... 1
1.1 About the Ten Year Plan .................................................................................... 1 1.2 Study Process .................................................................................................... 2 1.3 Needs Assessment Methodology ....................................................................... 3 2. Community Context and Growth ......................................................... 6
2.1 Benefits of Recreation and Parks ....................................................................... 6
2.2 Recent Accomplishments ................................................................................... 8 2.3 Planning for Growth ........................................................................................... 9 2.4 Other Demographic Considerations ................................................................. 12 2.5 Leading Studies and Corporate Reports .......................................................... 14 2.6 Recreation and Parks Trends and Best Practices ............................................ 14
2.7 Preliminary Research Findings ........................................................................ 15 3. Community Engagement .................................................................... 19
3.1 Overview .......................................................................................................... 19 3.2 Summary of Public Input .................................................................................. 20 3.3 Summary of City Input ...................................................................................... 25 4. Strategic Framework .......................................................................... 29
5. Indoor Recreation Facilities ............................................................... 32
5.1 Recreation and Community Centres ................................................................ 32 5.2 Arena Facilities ................................................................................................. 44
5.3 Indoor Pools ..................................................................................................... 45
5.4 Gymnasiums .................................................................................................... 50 5.5 Indoor Fitness Spaces ..................................................................................... 52 5.6 Indoor Sport Facilities ...................................................................................... 53 5.7 Requests for Other Types of Facilities ............................................................. 58 6. Outdoor Recreation and Park Facilities ............................................ 60
6.1 Soccer and Multi-Use Fields ............................................................................ 60
6.2 Ball Diamonds .................................................................................................. 64 6.3 Cricket Pitches ................................................................................................. 67 6.4 Tennis Courts ................................................................................................... 68 6.5 Pickleball Courts .............................................................................................. 70 6.6 Basketball Courts ............................................................................................. 74
6.7 Splash Pads and Outdoor Aquatics ................................................................. 76 6.8 Outdoor Ice Rinks ............................................................................................ 79 6.9 Skateboard Parks ............................................................................................. 80 6.10 Playgrounds ..................................................................................................... 83 6.11 Outdoor Fitness Equipment.............................................................................. 84
6.12 Community Gardens ........................................................................................ 85 6.13 Off-Leash Dog Areas ....................................................................................... 87
ii City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
6.14 Outdoor Event Spaces ..................................................................................... 89 6.15 Beach and Waterfront Facilities ....................................................................... 90 6.16 Other Outdoor Facilities ................................................................................... 92 7. Parkland .............................................................................................. 94
7.1 Planning Context .............................................................................................. 94
7.2 School Board Consultation ............................................................................... 95 7.3 Parkland Provision ........................................................................................... 97 7.4 Parkland Policy .............................................................................................. 120 7.5 Park Design, Maintenance, and Renewal ...................................................... 135
7.6 Recreational Trails ......................................................................................... 139 8. Recreation Service Delivery ............................................................. 144
8.1 Overview ........................................................................................................ 144 8.2 Sustaining Service Delivery............................................................................ 145 8.3 Expanding Programs and Services in a Growing Community ........................ 150 8.4 Increasing Participation of Diverse and Under-represented Residents .......... 154 8.5 Supporting a High-Performing Staff Team ..................................................... 158 9. Implementation ................................................................................. 162
9.1 Plan Evaluation and Monitoring...................................................................... 162
9.2 Financial Considerations ................................................................................ 163 9.3 Implementation Strategy ................................................................................ 165
Appendix
Appendix A: Project Alignment
Appendix B: Trend and Best Practice Review
Appendix C: Analysis of Public Input Appendix D: Asset Inventory and Mapping Appendix E: Supporting Materials for Facility Needs Assessments (Trends, Input, Usage)
Appendix F: Types of Partnerships and Approaches to Evaluation
Appendix G: Description of Existing Park Type Appendix H: Parkland Policy Background
iii
Acknowledgements
We appreciate the valuable input provided by Pickering residents, community groups,
and partners into this Recreation & Parks – Ten Year Plan. We also recognize the
insightful contributions from elected officials and staff of the City of Pickering. Your
passion for our recreational spaces and parks has been instrumental in crafting a plan
that truly reflects the needs and aspirations of our community.
City of Pickering Council (2022-26)
Mayor Kevin Ashe
Maurice Brenner, Regional Councillor - Ward 1
Linda Cook, Regional Councillor - Ward 2
David Pickles, Regional Councillor - Ward 3
Lisa Robinson, City Councillor - Ward 1
Mara Nagy, City Councillor - Ward 2
Shaheen Butt, City Councillor - Ward 3
City of Pickering Working Group
Laura Gibbs, Director, Community Services Brian Duffield, Director, Operations
Richard Holborn, Director, Engineering Services Marilou Murray, Manager, Community Services Administration & Strategic Initiatives Vince Plouffe, Division Head, Operations Services Rob Gagen, Manager, Parks & Property
Arnold Mostert, Manager, Landscape & Parks Development
Blaine Atwood, Senior Coordinator, Capital Assets Michael Cain, Supervisor, Safety, Security & Well-Being Karen Coleman, Manager, Recreation Services Kevin Hayes, Manager, Facilities Maintenance Paul Wirch, Principal Planner, Policy
Chantal Whitaker, Manager, Sustainability & Strategic Environmental Initiatives Nicole Hann, Coordinator, Public Affairs & Corporate Communications Jaclyn San Antonio, Senior Advisor, Diversity, Equity & Inclusion Kelly Generoso, Administrative Assistant
Project Consultants
Monteith Brown Planning Consultants Ltd.
Tucker-Reid & Associates
MJMA Architecture & Design (Arena Strategy) Largo Facility Management (Arena Strategy)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
iv City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Land Acknowledgment
We acknowledge that the City of Pickering resides on land within the Treaty and traditional territory of the Mississaugas of Scugog Island First Nation and Williams Treaties signatories of the Mississauga and Chippewa Nations. Pickering is also home
to many Indigenous persons and communities who represent other diverse, distinct, and
autonomous Indigenous nations. This acknowledgement reminds us of our responsibilities to our relationships with the First Peoples of Canada, and to the ancestral lands on which we learn, share, work, and live.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) v
Executive Summary
Pickering is a fast-growing and culturally-diverse community within the Greater Toronto Area, offering a blend of urban and rural settings along a picturesque Lake Ontario waterfront. The City
boasts high quality parks, recreation, and culture programs and facilities that contribute to the
personal health and wellbeing of residents and the community is so many ways.
This Recreation & Parks – Ten Year Plan establishes progressive directions that support the City and community stakeholders in delivering responsive and sustainable facilities and services. Specifically, the Plan provides direction and guidance for managing parks and recreation
programs, infrastructure, and investment in a fiscally responsible manner to the year 2034. In
doing so, the plan identifies the general types, quantities, locations, and timing of recreation services, facilities, and parks that are required to serve existing and future populations. It also considers the timing and priority of the recommendations, along with implementation strategies.
Rapid and significant population growth is the single biggest challenge that the City will
face in the coming years. Over the ten-year projection period of this study (2024-34), the City is
projected to grow to approximately 149,000 persons – growth of 45%.1 This Ten Year Plan will help position the City to respond to this growth, deliver efficient, inclusive, relevant, and valuable municipal services and, at the same time, remain fiscally prudent.
In charting a course for the next decade, the Plan:
•provides guidance on maintaining service levels in the face of rapid population growth, mostnotably for recreation facilities and parkland provision;
•considers emerging activities where supported by demonstrated needs, including both
structured and unstructured recreational activities;
•identifies options for addressing aging infrastructure;
•includes a comprehensive Arena Strategy (under separate cover) that identifies future
needs and provision strategies;
•offers new approaches for maximizing parkland supplies within growing neighbourhoods;
•provides direction on how to unlock the benefits of participation for all, including under-
represented populations; and
•provides tools for managing a broad range of partnerships and relationships that buildcommunity capacity and enhance public access to quality services.
1 City of Pickering. Detailed 20 Year Population Forecast. March 2023.
vi City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
A comprehensive public and stakeholder engagement program was initiated to ensure that the Plan responds to local aspirations, values, and priorities. Where appropriate, additional consideration was also given to participation trends, leading practices, socio-demographic data,
and growth projections.
There is much to be learned from the input provided by Pickering’s youth, residents, and organizations. Just some of the key themes that emerged from the engagement program include:
•Recreation and parks are critical to resident wellbeing. 92% of residents agree that Cityof Pickering recreation facilities are important to their quality of life.
•New indoor spaces and programs are needed to keep pace with a growing population,especially pools and gymnasiums in the Seaton area.
•Outdoor recreation demands are on the rise, such as trail use, racquet sports (tennis,pickleball, etc.), skateboarding, basketball, outdoor skating, and more.
•Youth are seeking more after-school recreation and arts-based activities in accessible and
convenient locations.
Pickering strives to be a complete, world class city...inclusive, connected, caring and prosperous. A key part of this corporate vision is recognizing the important contributions that recreation and parks services make to the community’s health, wellbeing, and overall quality of life. These services also benefit other community priorities and the public realm, such as active transportation, climate
change mitigation, social equity, economic growth and tourism, environmental health, and more.
Recreation and parks are worthy of sustained investment and enhanced focus. To inform the recommendations of this Ten Year Plan – as well as future decisions related to its implementation –a strategic framework has been developed.
Vision for Recreation and Parks:
Responsive recreation and park services that foster an active, inclusive, and
connected community where everyone can participate.
Core Principles:
1.Exceptional Service2.Financial Sustainability
3.Equity, Diversity, and Inclusion
4.Community Connectivity and Belonging5.Adaptable and High Quality Spaces6.Environmental Leadership and Innovation7.Collaboration and Partnerships
8.Personal and Community Wellbeing
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) vii
Within the Ten Year Plan are 100 recommendations, organized by subject area and summarized in Section 9 (Implementation), along with timing and funding considerations. While the Plan identifies many key priorities, the most important indoor recreation requirement in the short-term is the
delivery of the Seaton Recreation Complex & Library – a multi-use facility that will serve as the
heart of the Seaton community and be accessible by residents and visitors of all ages and abilities. Other notable priorities are summarized below (see Section 9 for a complete listing).
A.Indoor Recreation Facilities
i.initiate planning for the long-term revitalization of the Chestnut Hill Developments Recreation Complex (CHDRC) and consider relocating the indoor tennis courts to
another location, possibly within an air-supported dome
ii.introduce youth programming and space within the CHDRC
iii.consider constructing the proposed Seniors & Youth Centre in Pickering’s City Centre prior to 2034
iv.gradually reduce the number of community halls through attrition and/or improvements to
nearby facilities; no new community halls are recommended
v.examine future programming needs and potential capital replacement of the Dunbarton Indoor Pool
vi.prepare a business case to repurpose one racquetball court at the CHDRC for other in-
demand uses (e.g., group fitness space, etc.)
vii.Provide one indoor pickleball court for every 10,000 residents with a target of 15 indoor courts by 2034.
B.Arena Strategy (under separate cover)
i.begin planning to replace Don Beer Arena (3 pads) with two (2) new ice pads within theSeaton community no later than 2029 – the Seaton Recreation Complex & Library is thepreferred site for the new arena
ii.once a new twin pad opens, the Don Beer Arena site may be disposed of as per the City’sFacilities Renewal Study, with any proceeds to offset the cost of replacement infrastructure
iii.a second site may be required for a multi-pad arena beyond 2034, possibly in NortheastPickering
iv.work with the Town of Ajax to ensure that allocation practices and amounts are consistently
applied in both communities
C.Outdoor Recreation and Park Facilities
i.continue to advance park development in Seaton and growing neighbourhoods to addressgrowth related needs (playgrounds, splash pads, courts, etc.)
ii.earmark the Greenwood Conservation lands and future district park as locations for
multiple sport fields
iii.repurpose selected surplus ball diamonds in south Pickering
iv.develop up to 19 new outdoor pickleball courts by 2034, including dedicated courts inDiana, Princess of Wales Park, Dave Ryan Community Park, and another location in Seaton
viii City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
v.continue with plans for a refrigerated skating rink/water feature within City Centre Park
vi.consider a covered multi-use pad in Claremont Memorial Park to support extended use forfloor sports (ball hockey, skating, etc.), camps, and events
vii.work with the TRCA to enhance Petticoat Creek Conservation Park as a signature park
site for large events and festivals
D.Parkland
i.adjust the City’s parkland classification system (e.g., new park types in mixed use areas)and parkland dedication requirements identified in Bill 23
ii.adopt a minimum City-wide parkland provision target of 1.5 hectares per 1,000 residents
through to 2034
iii.prepare a parkland acquisition strategy to enhance current and future community accessto parks; target the priority areas identified in the plan
iv.establish planning guidelines to evaluate proposals for privately-owned public spaces
(POPs) and strata parks and the need for appropriate legal agreements
v.adopt a “Parkland First” approach that prioritizes parkland conveyance over cash-in-lieuof parkland; actively pursue direct purchase of land in priority acquisition areas andunserviced land with future parkland potential
vi.continue to expand and connect the recreational trail network
E.Recreation Service Delivery
i.increase staffing levels by providing targeted leadership courses in aquatics, programs,and camps; reach out to area school boards to assist
ii.establish strategies to assist not-for-profit groups in the recruitment, training, andretention of volunteers to support community-led recreation and sport programs
iii.seek sponsorships and sustainable funding to reintroduce the Swim to Survive program
iv.support the sport and recreation needs of Indigenous Peoples through collaboration withthis community and supporting agencies
v.ensure that all public spaces are safe and welcoming spaces for all users and staff,including under-represented populations
vi.develop a staff training and development continuum that identifies the necessaryknowledge, skills, and competencies for each job type to keep staff performing at a highlevel and improve readiness for succession planning
vii.develop a Ten-Year Staffing Plan that reflects approved levels of service and changes inpopulation-driven service requirements
Active implementation of the Recreation & Parks – Ten Year Plan is fundamental to its success. This requires coordinated efforts and a commitment from Council, staff, user groups, and the public, as well as a variety of funding sources.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) ix
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 1
1.Introduction
1.1 About the Ten Year Plan
Informed by extensive research and consultation with the community, the City of Pickering last prepared a Recreation and Parks Plan in December 2017. This plan has
served as an effective guide for facility development, park planning, and service delivery
since that time.
However, much has changed in the past seven years. The City is now planning for additional growth beyond that contemplated in past plans, with new residents – many with diverse cultural backgrounds – moving to Pickering every day. New recreation
activities have emerged and others have grown in popularity, partly fueled by the
pandemic and greater time spent outdoors and in smaller group settings. Opportunities to secure parkland for future generations through the development process have been reduced (most recently through Bill 23), necessitating new approaches for community building. Furthermore, the City’s inventory of parks and recreation facilities is now a bit
older, requiring greater attention to renewal and revitalization.
The time has come to update the Recreation and Parks Plan and establish progressive directions that support the City and community stakeholders in delivering responsive and sustainable facilities and services. More specifically, this Ten Year Plan provides direction and guidance for managing parks and recreation programs, infrastructure, and
investment in a fiscally responsible manner for the period of 2024-2034. In doing so, the
plan identifies the general types, quantities, locations, and timing of recreation services, facilities, and parks that are required to serve existing and future populations. It also considers the timing and priority of the recommendations, along with implementation strategies.
As noted in the City’s Corporate Strategic Plan, rapid and significant population growth is the single biggest challenge that the City will face.
Over the ten-year projection period of this study (2024-34), the City is projected to grow to approximately 149,000 persons – growth of 45%.
A goal of this Ten Year Plan is to help position the City to respond to this growth, deliver efficient, inclusive, relevant, and valuable municipal services and, at the same time, remain fiscally prudent.
2 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Notable amenities and services addressed within the plan include (but are not limited to):
•indoor recreation facilities such as community centres, arenas2, pools, seniors
and youth space, sport facilities, and more;
•outdoor recreation amenities such as sports fields, sport courts, playgrounds,splash pads, skate parks, community gardens, and more;
•parkland, including future requirements across Pickering and within strategicgrowth areas (note: this Ten Year Plan will serve as a parks plan as required bythe Planning Act); and
•recreation services, such as drop-in and registered programs, policies and
practices, community supports, and more.
This Ten Year Plan is being prepared with the assistance of a consulting team and being informed by a wide-ranging engagement program targeting input from both internal (City staff, Council) and external (public, service providers) stakeholders.
Additional consideration was also given to participation trends, leading practices, socio-
demographic data, and growth projections.
1.2 Study Process
The Recreation & Parks – Ten Year Plan establishes an approach to planning for the provision of recreation and parks facilities and services across the entire City of Pickering. Its focus is on recreation and parks facilities owned and/or operated by or in
partnership with the City that support participation in sport, recreation, and leisure
activities. This includes places and spaces that facilitate both structured and unstructured recreational experiences for the benefit of individuals and communities.
The methodology involved the preparation of a series of interim reports that build the foundation for the full plan, prepared by the Consulting Team and overseen by the City’s
inter-departmental Steering Committee. This includes: (1) an Internal Consultation
Report outlining key issues and priorities identified by City officials and staff; (2) a Situation Analysis Report containing demographic profiles of the City, facility inventory details, trends research, and summaries of related policy documents; (3) a Community Consultation Report summarizing the results of the initial phase of public and
stakeholder consultation; and (4) a Needs Assessment Report containing evidence-
based assessments for all in-scope facilities and services. The Recreation & Parks – Ten Year Plan was formed from these reports and includes a multi-year implementation strategy that identifies synergies and priorities across the city and for all facility types.
2 Note: Supported by the Ten Year Plan but delivered under separate cover is an Arena Strategy, a key initiative that was recommended within the 2017 Recreation and Parks Plan.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 3
Figure 1: Ten Year Plan Deliverables
Additionally, an Arena Strategy was developed concurrently with the Ten Year Plan. Although the Arena Strategy is a distinct deliverable, the Ten Year Plan’s internal and
external consultation program was designed to inform both studies.
1.3 Needs Assessment Methodology
Creating a sustainable and equitable network of recreation facilities and parks for all community members requires considerable research and direction-setting. Regular monitoring and adjustments may be required as needs can be relative and may vary according to the type of facility and the communities they serve. In all cases, equity of
access is the primary objective – ensuring that all residents have appropriate access to
municipal recreation facilities and parks based on their interests.
This Ten Year Plan employs a standards-based gap and provision analysis that will help Pickering identify and plan for new parks and facilities as the city grows and needs evolve. Provision targets incorporating a multitude of variables (e.g., current service
levels, socio-demographic and growth factors, public and stakeholder input, trends
research, municipal benchmarking, municipal policy, etc.) have been established through an understanding of current service levels, usage, and demand indicators.
Examples of provision target types include:
•Total Population: Used to assess facilities that serve people of all ages, such as
recreation complexes.
•Target Population: Used to assess facilities that serve distinct age groups, suchas youth-based facilities.
•Registered Participants: Used to assess facilities that are mostly used throughpermitted rentals, such as arenas and sports fields.
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4 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
•Geographic Distribution: Used to assess facilities with localized service areasto which residents may reasonably expect to walk or bike, such as playgrounds
and outdoor courts.
The provision targets are evaluated against the spatial distribution and growth factors to determine potential gaps and needs now and into the future. To support this analysis, a comprehensive, integrated inventory of parks and facilities was prepared. It is vital that the City keep this inventory up-to-date to support future planning efforts
and track progress.
All targets are intended to be applied flexibly and may be modified over time to remain responsive to local needs. Different targets may be established for unique circumstances, such as stable and growing communities with different urban structures. They are not intended to be strictly adhered to at the local level as each community may
have different needs based on its unique characteristics.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 5
6 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
2.Community Context and Growth
This section provides summaries of supporting research, including the City’s demographic characteristics and growth forecasts. The implications of this information
on facility and park planning are substantial and will assist in identifying key geographic areas and population groups that should be priorities for future investment.
2.1 Benefits of Recreation and Parks
Access to recreation and parks services is a fundamental human need in all ages and stages of life. People participate in recreational activities for fun, enjoyment, fitness and health, social interaction, creative expression, a desire to connect with nature, relaxation
and to enhance their quality of life. Most people also understand and support the
beneficial role that recreation and parks play in community development.
Recreation, parks, and related service providers play an important role in collectively enabling residents and families to reach their full potential. Each organization has an inherent responsibility to understand and respond to local social, environmental, and
economic issues. Their role is to engage as many residents as possible in healthy and
active pursuits, and to inform, educate, engage, and activate residents toward the common community good.
All recreation and parks facilities and the services they provide play a role in placemaking, socialization, inclusion, physical activity, culture, and the city's history.
Many also address key drivers such as beautification, environmental stewardship, and
poverty reduction, all of which serve to position Pickering as a great city. Recreation and parks facilities and services also help build strong neighbourhoods and improve quality of life for residents. An effective combination of recreation spaces and parks in the right places can have a significant impact on resident interaction, community building, and
positive social outcomes.
A study “The Price of Inactivity: Measuring the Powerful Impact of Sport, Physical Activity and Recreation (SPAR) in Canada” was released in 2023 by the Canadian Parks and Recreation Association and the Canadian and Fitness Lifestyle Research Institute. Summarized below, this data and the respective impacts on Canadian society
are compelling and can assist all levels of government and related organizations make
evidenced-based decisions on investments in recreation and culture.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 7
Table 1: Summary of the Impact of Sport, Physical Activity, and Recreation in Canada
Social Health
•SPAR contributes $13.6 billion in •Physical inactivity accounts for $3.9 billionvolunteerismof annual healthcare expenditures
•27% of Canadian adults actively volunteer •Certain conditions like heart disease,in SPAR related activities diabetes, obesity, anxiety, and depression
•
•
•
76% of Canadians feel welcomed andincluded through SPAR activities
Programs, especially engaging olderadults have the potential to reduce
isolation and loneliness and improvesocial cohesion
69% of Canadians agreed that SPARcontributes to reduction in harmfulbehaviours such as suicide ideation
•
disproportionately affect equity-seekingpopulations, such as women, older adults,Indigenous persons, those withdisabilities and individuals from theLGBTQ2S+ community
Physical inactivity is a risk factor formental illness; the cost associated withtreating depression in Canada isapproximately $409 million annually. A10% decrease in physical inactivity canreduce this cost by 17.3%
•SPAR has the potential to enhancecognitive function and overall mentalhealth, crucial for quality of life andcommunity prosperity
Economy Environment
•
•
•
•
SPAR contributes $37.2 billion toCanada’s economy
Retail sales of SPAR products reached$23.3 billion in 2022, a 7% increase from
the previous year, contributing $21.5billion to GDP
The amusement, recreation, and sportsector added 42,728 jobs in 2022compared to 2021 (not including thepublic sector)
Canadian governments invested $2 billion
in SPAR infrastructure in 2022, with $1.5
•
•
•
The replacement value of replacing SPARinfrastructure is estimated at $42.5 billionannually
If 1% of Canadians switched from car useto active transportation, $564 millioncould be saved in greenhouse gasemissions
A 2% increase in bicycle infrastructureinvestment can prevent up to 18premature deaths and reduce carbonemissions by up to 142,000 tonnes over10 years
billion coming from municipalities. Somemunicipal investment could be fromfederal or provincial/territorial funding(e.g., through grants and contributions)
The benefits of participation in recreation for individuals and communities are well documented. By focusing on key community priorities and monitoring progress,
recreation and parks facilities are important indicators of Pickering’s success.
8 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
2.2 Recent Accomplishments
Recreation and park facilities are vital contributors to strong, vibrant communities and help residents to achieve many of their personal goals. Pickering boasts high quality parks, sports fields, recreation and culture programs, and major parks and facilities such
as the Chestnut Hill Developments Recreation Complex, Don Beer Arena, Pickering
Museum Village, Pickering Soccer Centre, Petticoat Creek Conservation Park, and much more. These recreation and park services contribute to the personal health of residents as well as the wellbeing of the Pickering community.
In recent years, the City has initiated and completed several significant projects – many
that were advanced through the 2017 Plan – including (but not limited to) the following.
a.Construction has begun on the Pickering Heritage & Community Centre, a new multi-use hub offering space for programs, events, and exhibitions.
b.Planning is beginning on the Seaton Recreation Complex & Library, with the design process set to start in 2024, followed by construction starting in 2026.
c.The Pickering Soccer Centre was reopened following significant damage from a
winter storm.
d.Council has confirmed the construction of City Centre Park (consisting of a water feature/skating rink, pavilion, public art, vendor space, etc.) as a priority; Phase 2 of the City Centre Project (including the proposed Senior & Youth Centre and
Performing Arts Centre) has been deferred until 2028 for future consideration.
e.The City has initiated negotiations with the Toronto and Region Conservation Authority to enhance park amenities and year-round programming within Petticoat Creek Conservation Park project.
f.City of Pickering recreation programming has been expanded in Claremont and
implementation continues on the Claremont Memorial Park concept plan.
g.Restoration and rehabilitation of Rotary Frenchman's Bay West Park has been completed and work will soon begin on Beachfront Park.
h.The West Shore Skate Spot opened in 2022.
i.The running track at Beverley Morgan Park was recently replaced.
j.Pickleball lines have been added to several tennis courts and the City is in
process of adding 4 new (shared) pickleball courts in Shadybrook Park.
k.Dunmoore Park tennis courts are being reconstructed this year.
l.Various playground improvements have been completed across the city and more are underway.
m.Planning and development of many new community parks, neighbourhood parks, and village greens for the Seaton community are underway.
n.The Region is advancing planning for the Durham Meadoway, a proposed pedestrian and cycling route and linear park across Durham Region.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 9
2.3 Planning for Growth
Until recently, population growth in Pickering has been quite. This has begun to change with the development of the Seaton community in Central Pickering and residential intensification within the City Centre and Kingston Road corridor. Between the 2016 and
2021 Census periods, the City grew from 91,771 to 99,186 persons. This is a five-year
growth rate of 8%, representing an average annualized growth rate of 1.6%. Durham Region also grew by 8% over the same period.
An estimate of 103,000 persons for 2024 will be used as a baseline population for this Ten Year Plan3.
Pickering is set to undergo substantial growth in the years to come. Over the ten-year projection period of this study (2024-34), the City is projected to grow to approximately 149,000 persons – growth of 45%. By 2042, this figure is forecasted to grow to 185,044 – growth of 80% from 20244. The Region has also set a longer-term population forecast for Pickering of 256,370 persons by 2051 – this would require an
expansion of the current urban area boundary.5 Part of this growth is attributed to the
provincial housing target of 13,000 units to be achieved by 2031, an average of 1,300 units per year for the next decade. These forecasts are much higher than previous estimates, including the ones included in the 2017 Plan.
Figure 2: City of Pickering Population Forecast for 2022 to 2042
Source: City of Pickering. Detailed 20 Year Population Forecast. March 2023.
Planned population growth is allocated to new communities and strategic growth areas. This includes the Seaton community in central Pickering, which will be home to 70,000 new residents within a more traditional greenfield subdivision (featuring mixed housing
3 Rounded from the 2024 estimate of 102,919 persons from the City of Pickering Detailed 20 Year Population Forecast (March 2023).
4 City of Pickering. Detailed 20 Year Population Forecast. March 2023.
5 Region of Durham. Envision Durham: Official Plan (adopted). May 2023.
100,000
118,091
139,430
163,350
185,044
90,000
100,000
110,000
120,000
130,000
140,000
150,000
160,000
170,000
180,000
190,000
2022 2027 2032 2037 2042
10 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
styles and designated employment lands), integrated with a thriving agricultural community and an extensive Natural Heritage System. Furthermore, higher density residential intensification is planned for the City Centre, Brock Road, and Kingston Road
Corridor area, which are intended to be compact, walkable, close to transit, and
environmentally sustainable communities.
The following map and table illustrate planned population growth to 2042 by neighbourhood based on active residential development applications and potential growth on vacant lands.
Figure 3: Projected Population Change by Neighbourhood, 2022 to 2042
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 11
Recreation and parks facilities and services are essential to fostering complete communities, including areas that are beginning to experience residential intensification. Within these areas, more compact urban built forms (e.g., condominium towers,
townhouses, etc.) are becoming more common, resulting in higher population densities
and putting pressure on existing systems such as recreation centres and parks. Planning for this transformation has been many years in the making and remains ongoing.
Life in mixed use areas with mid- to high-rise buildings will differ in several ways to that
in traditional suburban neighbourhoods and people will interact with public space
differently. Some of the anticipated considerations of these changes are noted below.
•As the amount of private space shrinks, the public realm will increasingly becomean extension of people’s homes. Higher quality and more robust public amenities
will be required, including “third places” where people can gather and socialize
freely.
•Given housing affordability challenges, families are likely to turn to condoownership as places to raise their children, placing pressure on recreation
programs (e.g., swimming, etc.) and park spaces. The lack of backyard spacewill create challenges and place greater importance on the ability of public spaceto serve more people, more often, and in different ways.
•Condo amenities can include leisure-activity spaces; however, these are not
typically supervised or programmed in the same way as municipal facilities and
will be generally be smaller and of variable quality.
•Active transportation routes (trails, cycling corridors, etc.) and public transit thatconnect residents to key recreation and park destinations in other locations of the
city will be vital to ensuring that residents have ready access to amenities and
activities that are not possible to provide locally, such as sports fields andexposure to more naturalized settings.
•Higher-order facilities such as recreation complexes, artificial turf fields, event
venues, etc. may be more viable within high density areas due to the largermarket. However, land economics suggest that building footprints will need to besignificantly smaller, creating the need for multi-storey construction, reducedspace allocations, less parking, and space-saving partnerships. Conversely,there may be requests for extended hours and services.
•Public spaces will be more diverse, accessible, flexible, dynamic, and safe,supporting year-round public life and setting the stage for daily social interactionand community building. As a Smart21 Community, Pickering will also seek toenhance and expand connectivity to Wi-Fi, digital sources, social media, eSports,
artificial intelligence, virtual and self-serve technologies, and more within its
public spaces and facilities.
•In general, the changes in built form and population growth associated with thesegrowth areas will require innovative and integrated approaches to the funding
12 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
and delivery of recreation services, including partnerships, co-locations, and more.
New space and facilities should keep pace with growth to ensure that residents and
workers will be served by new, improved, and expanded recreation facilities and parks.
The City's ability to grow depends on responding to the demand for new or additional services and facilities in a timely and coordinated way.
2.4 Other Demographic Considerations
Age
Age is an important factor for planning recreation facilities and parks. While 26% of
Pickering’s population is represented by adults ages 35 to 54 years, the size of this age
cohort has been declining over the past 10-years as older adults (38%) and seniors (43%) have experienced the most significant increases (2021 Census).
With the exception of youth who have decreased by a rate of 14%, the City has experienced an increase in each of the other age cohorts between 2011 and 2021.
Pickering’s 40.8-year median age is slightly older than that of Durham Region (40.0
years), but younger than that of the Province (41.6 years). The following table and figure show the distribution and growth of Pickering’s population over the past three census periods.
Table 2: Population by Age Group, City of Pickering (2011 to 2021)
Age Cohort 2011 2016 2021 Change from 2011-2021
Children (ages 0 to 9) 9,035 9,455 10,785 19%
Youth (ages 10 to 19) 13,425 11,750 11,530 -14%
Young Adults (ages 20 to 34) 15,845 17,610 19,525 23%
Adults (ages 35 to 54) 27,910 25,930 26,040 -7%
Older Adults (ages 55 to 74) 17,945 21,575 24,800 38%
Seniors (ages 75 and over) 4,550 5,470 6,525 43%
Total 88,720 91,771 99,186 12%
Median Age 40.7 41.6 40.8 0%
Source: Statistics Canada, Census of Canada
Looking forward to the year 2051, the population in Durham Region (and – by extension –Pickering) is forecasted to continue to get older, with the number of seniors (age 75+)expected to grow faster than all other age cohorts. Age-specific forecasts are not
available only for the City of Pickering and it is possible that Pickering will experience
different rates of growth across its age spectrum as development occurs within the city’sstrategic growth areas and new communities.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 13
Figure 4: Durham Region, Total Population Forecast Shares by Major Age Group, 2021 to 2051
Source: Region of Durham, Region-Wide Growth Analysis Technical Report (June 2021)
Income
Research has found that income levels influence (or at least are an indicator of) participation levels in recreation and sport opportunities. 2021 Census data indicates
that the City’s median household income of $118,000 ($102,000 after-tax) was 10%
higher than the Durham Region median and 30% above the provincial median. The City’s median household income rose by 18% from five years prior. Higher incomes can contribute to high expectations for recreation facility provision and service delivery.
Municipalities are mindful of offering more low-to-no cost recreation offerings where
possible. While Pickering’s households have higher incomes than most communities,
the City provides several accessible low cost and subsidized recreation programs for residents.
Income disparity is a growing concern in many Ontario communities as less affluent individuals are less likely to participate in leisure activities than their more affluent peers.
Municipalities are mindful of offering more low-to-no cost recreation offerings where
possible.
In 2020, Pickering had 2,870 residents living below Statistics Canada’s low-income cut-off, after tax (LICO-AT), amounting to 2.9% of the overall population. This is down considerably from 2015, when 6.4% of the population was identified as low-income. For
comparison, 2.9% of Durham Region residents and 5.3% of Ontario residents were below the low-income cut-off in 2020.
5%
10%
15%
20%
25%
2021 2026 2031 2036 2041 2046 2051
0-19 20-34 35-44 45-54 55-64 65-74 75+
14 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Immigration and Diversity
Pickering has a diverse population that is represented by changing demands for recreation and sport. Notable is the significant population of visible minorities, which
account for 52% of the population in 2021 (up from 43% in 2016). There are several
studies that demonstrate that additional barriers to participation exist for residents of our BIPOC communities6.
The distribution of official languages spoken most often at home in Pickering is 82% English, 0.4% French, and 12.3% non-official languages. Non-official languages are
mainly represented by Tamil (2%), Urdu (2%), Tagalog (Pilipino, Filipino) (0.7%),
Gujarati (0.6%), and Mandarin (0.6%).
As the city has grown, its population has also become more diverse. Between the 2016 and 2021 Census periods, the number of Pickering residents born outside of Canada increased by 15% (adding 2,820 persons) – nearly two out of every five (38%) new
residents in Pickering were newcomers to Canada. Whereas immigrants to Canada
accounted for 34% of the population in 2016, newcomers comprise 36% of all Pickering residents in 2021 and this figure is expected to rise into the future.
Newcomers to Canada are more likely to reside in growing areas such as Seaton and intensifying areas closers to Highway 401.
2.5 Leading Studies and Corporate Reports
The City of Pickering and other public agencies have authored several studies, reports,
and plans that help to directly and indirectly inform and guide the provision and delivery of recreation and parks services and facilities. A listing of all relevant reports reviewed during the planning process can be found in Appendix A; their relevant findings are described in more detail within supporting documents.
2.6 Recreation and Parks Trends and Best Practices
Trends and best practices have played a significant role in shaping this Ten Year Plan.
They serve as valuable guides and benchmarks for planning, helping to improve the relevance, innovation, and alignment of planning efforts. By staying informed and adaptive to evolving trends, this plan can effectively meet community needs now and in the future. Notable trends and best practices are listed in Appendix B and are described in more detail within supporting documents.
6 One such example: “More than one in three Black youth, one in four Indigenous youth, and one in five BIPOC youth reported having directly experienced racism in sport.” MLSE Foundation (2021). https://www.mlsefoundation.org/news-stories/mlse-foundation-reveals-change-the-game-research-results
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 15
2.7 Preliminary Research Findings
Key findings from the initial situation analysis phase are summarized below. These themes (which are listed in no particular order) were considered in subsequent project phases along with public input and local demand indicators to inform the Ten Year
Plan’s recommendations.
Population
Growth
After years of little change, Pickering is poised for substantial population growth. By 2042, the City’s population is forecasted to
grow to 185,044 – an increase of 85%. These forecasts are much
higher than previous estimates, requiring thoughtful but significant adjustments to past recreation and park planning strategies.
New recreation and parks facilities will be required to address
growth-related demands, as well as changing participation. Park
creation is lagging behind past standards, making it more difficult to establish the land base required for active and passive uses. Greater pressure will also be placed on existing assets to meet the demands of a growing population.
Urban Form As Pickering grows, its urban form will change. Population growth is allocated to new communities and strategic growth areas such
as Seaton, City Centre, Brock Road, Kingston Road Corridor
area, and emerging Northeast Pickering area. The City’s planning policies support higher population densities in strategic growth areas. Higher residential densities often mean less private space (e.g., living space, backyards, etc.), making it more critical that
public spaces be accessible, well designed, and capable of
accommodating more intense use.
Participation Trends
Pickering is changing and recreational needs are expanding as
different interests and new trends emerge. Pickleball and outdoor activities are just some of the options that residents are looking for within the City’s facilities and parks. Flexible and inclusive spaces are needed to address current priorities and those to
come. Monitoring of trends in sports and activities allows the City to look toward a balanced range of amenities when and where they are needed. Flexibility in park and facility design also helps the City respond to these changing participation patterns.
16 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Evolving Demographic Profile
Pickering’s population has been aging over the past decade, with
increases in the number of older adults and seniors, coupled with a decrease in the youth population. This trend is forecasted to continue across Durham Region, with the number of seniors expected to grow faster than all other age cohorts. These trends
have led to increased demand for a wider variety of interests,
including both active pursuits (e.g., pickleball, hiking, etc.) and more passive activities (e.g., hobbies, socials, special events, etc.). With slower growth projected for child and youth cohorts, the demand for active sports amenities targeted to these
populations can also be expected to slow.
The current economic circumstances are challenging for many Pickering households, with many facing barriers in accessing leisure opportunities. Accessible spaces and affordable services are critical to ensuring that everyone can participate fully.
Pickering also has a diverse population, including a large BIPOC
community, and much of the City’s future growth is expected to be include newcomers to Canada. This will create new demands on recreation and parks services such as culturally-appropriate programming, picnic and special event spaces, cricket fields, etc.
Pandemic Implications
The pandemic will have a lasting impact on the recreation and parks sector, which is increasingly being viewed as essential not only to physical health, but also mental wellbeing. For example,
unstructured park use has increased, helping people stay active
and connected. Many recreation activities have grown or emerged through the pandemic as people have found new interests and are trying to catch up for lost time. Conversely, some organized sports have not fully rebounded and rising costs
are becoming a new concern for many. Long-term planning and
strategic investment are vital to support the significant role that these spaces play in our personal, social, and economic recovery and revitalization.
Facility Provision & Benchmarking
Facility provision ratios and municipal benchmarking are just some of the tools that are used in identifying long-term infrastructure needs. At a preliminary level, this data recognizes
some gaps in facility distribution and identifies key priorities for
growth-related facility development. With guidance from past plans, the City has several projects in the planning and construction pipeline that will help address growing needs relative to multi-use recreation centres, outdoor courts, and more.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 17
Project Alignment
Recent and relevant policy direction provides a strong foundation
upon which to build this Recreation & Parks – Ten Year Plan. Innovation, sustainability, and community building are just some of the common threads that are woven throughout the City’s planning documents – the plan’s strategic framework will seek
alignment wherever possible.
Previous Plan The 2017 Plan helped to guide the City’s recent capital program – 73% of its recommendations have been completed or are in
progress. Short-term planning helps the City to respond to emerging needs in a timely fashion, while taking the long-view ensures that major infrastructure can be integrated into long-range financial plans. In the next phase of analysis, the recommendations from this previous plan will be reviewed and
reassessed to align with current directions and updated
information.
Potential Impacts of Bill 23
The Planning Act has undergone several amendments in recent
years that represent fundamental changes in how growth planning is carried out in the province – this includes Bill 23 (More Homes Built Faster Act). One area of notable change is updated direction regarding the conveyance of parkland through the
development approvals process. The changes will make it
extraordinarily challenging for the City to realize established targets for parkland conveyance, especially within strategic growth areas. The policy and financial implications will be wide ranging as the City strives to maintain appropriate park provision
levels through acquisition and other tools.
Bill 23 also made sweeping changes to the Development
Charges Act, shifting some of the cost of growth from developers to municipalities to incentivize housing affordability and supply. Overall, the City’s estimated loss of Development Charge
revenues is approximately $22.8 million over the next four years
(2023-2026). This has the potential to delay the development of growth-related infrastructure or result in a reduction to service levels. Financial sustainability will be one of several goals advanced within this Ten Year Plan.
18 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 19
3. Community Engagement
Public engagement for this Ten Year Plan is essential to creating more inclusive, responsive,
and dynamic recreation and parks facilities and services that truly reflect the needs and aspirations of the community. This section summarizes the many ways in which the public have been involved within this planning process, including key themes
from the consultations.
3.1 Overview
Key engagement tactics utilized for this Ten Year Plan have included:
•Public Open Houses (in-person and virtual) to solicit input from the generalpublic (engaged 210 participants) – input was also solicited through Activation
Boards (engaged 570 participants) available at key facilities.
•An online Community Survey (1,374 respondents representing an estimated4,500 persons) to gather opinions and preferences from residents.
•An extensive Youth Engagement Program led by the City of Pickering to
engage students and local teens in the planning process – tactics included ayouth-focused survey (827 respondents), in-school presentations, and otherinformation gathering options.
•Stakeholder Input (26 groups participated representing an estimated 5,800members) through a series of topic-based workshops and focused interviews togather input from community organizations, volunteer associations, and usergroups.
To date, we have directly consulted with 3,000
persons, representing
priorities for over 12,000
residents and recreation participants.
20 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
3.2 Summary of Public Input
Input from the plan’s community and stakeholder engagement is summarized below. These themes (which are listed in no particular order) have informed the Ten Year Plan’s recommendations. Additional detail can be found in Appendix C.
Recreation and parks are critical to resident wellbeing
Recreation and parks are the building blocks of healthy, happy, and vibrant communities. 97% of residents agree that City of Pickering parks are important to their quality of life and
92% say the same about local recreation facilities.
New indoor
spaces and programs are needed to keep up with a growing population
More than two-fifths (43%) of survey respondents indicated that they are not satisfied with the City’s breadth of recreation
programming. In particular, there is high demand for aquatic
programs and access to city pools for both residents and clubs. Needs are also rising for gymnasium sports such as volleyball, basketball, and pickleball. Additionally, requests were also received for expanded and new programming (e.g.,
youth, older adults, arts, general interest, etc.) that cannot be
accommodated within existing venues. Access to community recreation spaces is of particular importance to residents living in the growing Seaton community.
Outdoor recreation demands are on the rise
Residents place a high value on Pickering’s parks and outdoor spaces. Unorganized outdoor activities increased during the pandemic and exposed residents to many traditional and emerging pursuits that remain in high demand,
such as trail use, racquet sports (tennis, pickleball, etc.), skateboarding, basketball, outdoor skating, and more. Strong support was expressed for additional investment in outdoor spaces and amenities, including park washrooms, sport courts, playgrounds, splash pads, and open space to support
events and picnicking.
Youth are
seeking more
after-school
activities
Pickering’s children and youth want to participate in more
activities but are just as time-constrained as their parents.
Scheduling activities after-school is preferred, but they must be in accessible and convenient locations. They expressed interest in seeing more unstructured and drop-in recreation opportunities (such as swimming, beach volleyball,
basketball, etc.), as well as an expanded range of creative arts programs. Expanded Wi-Fi in parks and facilities was also suggested.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 21
Sport participation is shifting
As the city’s population grows and becomes more diverse
(age, ethnicity, etc.), sport participation is also changing. Some traditional sports (such as ice hockey and baseball) are witnessing declining or stable participation profiles, while others (such as soccer, tennis, and swimming) are growing.
Pickleball and cricket also represent just some of the
emerging sports that are on the rise and need to be accommodated within the City’s parks system. Further, some lower participation sports (such as squash and racquetball) have strong local followings and expect that service levels be
maintained.
Many sports associations are regional – crossing municipal boundaries – and residents frequently travel outside of Pickering to access programs and spaces that are not available locally. It will be important to understand what
options existing within the region and Pickering’s role in
supporting the broader sport network. Some groups suggested a need to review the City’s permitting process to ensure that local organizations receive priority access.
Maintaining affordability promotes participation and access
Three-quarters (73%) of residents feel that Pickering’s program fees are reasonable and that maintaining affordability is a vital investment in the health of individuals and the community. Some community organizations and user
groups expressed concern about rental rates and new
pricing structures, but are largely satisfied with the level of service that these fees help to support. Improved public transit was also suggested as a way to ensure that the City’s recreation and parks spaces are inclusive of all needs.
Challenges
remain as we
emerge from the pandemic
The COVID-19 pandemic was an unprecedented time for the recreation and parks sector and many community
organizations continue to be presented with new challenges
in this post-pandemic period. Declining volunteerism, rising costs, retention of girls/women in sport, and a lack of facility access are concerns for several groups, many of which are seeking ways to reduce the impact on their members so they
can maintain strong registration levels. Interest in virtual
programming was also expressed as a way to enhance accessibility and inclusion for all.
22 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Residents value access to the waterfront, trails
and natural areas
Walking is the most common activity for Pickering residents
(followed by trail use and picnicking) and demand for trails and informal park spaces topped the list of infrastructure investments. Residents particularly enjoy access parks and trails along the waterfront and Frenchman’s Bay, and place a
high value on open space properties (many of which are
operated by others, such as the Petticoat Creek Conservation Area). Stakeholder groups expressed an interest in expanding the trails network, improving connections to Rouge National Park, and enhancing waterfront access for activities
such as canoeing and dragon boating.
Climate change, environmental sustainability, and greenspace protection are also becoming more prominent themes in the City’s future planning.
Partnerships and collaborations will be important to moving forward
There is a spirit of cooperation amongst community groups, as many recognize the challenges of facility development and are open to working together to achieve common goals. For example, some organizations are open to cost-sharing for
facility enhancements. Long-term planning is essential to
supporting a strong and diverse network of recreation providers, and community organizations are willing to collaborate.
The two graphs below illustrate two key questions from the community survey that have helped to inform the plan’s recommendations, including:
• resident/household participation in recreation and park activities; and
• priority for public spending on various facility types.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 23
Figure 5: During the past 12 months, please indicate the types of recreational or park activities that you and/or any members of your household have participated in (n=1374)
9%
1%
2%
2%
2%
2%
3%
4%
5%
6%
7%
8%
8%
8%
9%
9%
11%
11%
11%
11%
13%
13%
14%
14%
16%
16%
17%
19%
19%
20%
22%
23%
25%
27%
29%
29%
35%
35%
36%
42%
52%
82%
Other
Bocce
Racquetball
Lawn Bowling
Field Sports such as Rugby or Football
Curling
Beach Volleyball
Cricket
Squash
Teen Programs (e.g., drop-in activities, etc.)
Volleyball
Skateboarding or Scootering
Fishing
Badminton
Soccer (Indoor)
Baseball or Softball
Seniors Programs (e.g., luncheons, cards, etc.)
Pickleball (Outdoor)
Leisure Swimming (Outdoor)
Basketball
Lane Swimming
Kayaking/Canoeing/Dragon Boating
Tennis
Pickleball (Indoor)
Recreational Skating (Outdoor)
Hockey or Figure Skating
Soccer (Outdoor)
Running or Jogging on Outdoor Tracks
Beach Activities
Weight-training
Children’s Programs (plays, crafts, camps, etc.)
Recreational Skating (Indoor)
Splash Pads
Cycling on Trails
Special Events in Parks
Cycling on Roads
Use of Playground Equipment
Leisure Swimming (Indoor)
Fitness Programs and Classes
Picnicking or Casual Use of Parks
Use of Trails
Walking or Hiking on Trails or Outdoor Tracks
24 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Figure 6: To what degree do you oppose or support the City spending additional public funds to provide more of the following types of facilities in Pickering?(n=1052-1131)
Note: “Don’t Know” responses not shown.
32%
33%
37%
38%
40%
40%
46%
45%
47%
49%
53%
53%
53%
54%
55%
56%
57%
57%
57%
58%
58%
60%
64%
65%
65%
66%
72%
72%
73%
75%
76%
77%
79%
80%
81%
87%
42%
36%
35%
38%
34%
33%
37%
31%
34%
35%
26%
32%
34%
37%
29%
26%
25%
29%
26%
23%
25%
24%
16%
22%
21%
21%
17%
15%
14%
16%
14%
14%
12%
13%
11%
9%
Disc (Frisbee) Golf Courses
Racquetball Courts
Squash Courts
BMX Bike Parks
Football or Rugby Fields
Cricket Fields
Off-Leash Dog Parks
Skateboard Parks
Beach Volleyball Courts
Baseball or Softball Diamonds
Pickleball Courts (Outdoor)
Arts Studios
Arenas (Ice Sports)
Bike Lanes (on-road)
Community Halls or Banquet Rooms
Dance/Fitness Studios
Tennis Courts (Outdoor)
Outdoor Fitness Equipment or Exercise Areas
Basketball Courts (Outdoor)
Special Event Parks
Indoor Sport Fields (Soccer, etc.)
Soccer Fields (Outdoor)
Parkland Acquisition
Fitness Centres (equipment-based)
Community Vegetable Gardens
Swimming Pools (Outdoor)
Gymnasiums (Basketball, Volleyball, Pickleball,…
Dedicated Seniors’ Space
Dedicated Youth Space
Outdoor Skating Rinks
Splash Pads
Swimming Pools (Indoor)
Trails (off-road)
Informal Spaces in Parks for Picnics and Free…
Playgrounds
Park Washrooms
Support Oppose
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 25
3.3 Summary of City Input
Input from City Council and staff was equally important to the planning process. Key themes from these consultations are identified below (listed in no particular order).
Population and Growth-Related
Capital Needs
After years of slow growth, Pickering’s population is on the rise with substantial growth on the horizon (Seaton, Cherrywood, Northeast Pickering, etc.). This development will be focused on greenfield areas as well as strategic
growth areas such as the City Centre, bringing higher
density residential forms to the city, placing pressure on existing parks and facilities and generating demands for more.
A key priority for the City will be advancing the development
of a multi-use recreation centre in the Seaton area, which is
needed to address growing demands for aquatic services and recreational programming of all types. Longer-term, additional recreation facilities and park amenities will be needed to respond to growth (especially in the north),
greater cultural diversity, and changing interests. A focus should be placed on flexible spaces that can adapt to shifting needs.
Parkland Acquisition
A growing community will require new lands for recreation, community gatherings, sports, events, and respite. Expanding the City’s parks system is a high priority, particularly larger parks that can support active play and
sport as well as space for events and passive recreation.
There have been regular requests for more amenities such as sport courts (basketball, pickleball), splash pads, skateboard parks, community gardens, and more.
Recent changes to the Planning Act will reduce the amount
and quality of lands (and funds) that the City can acquire for
parkland in the future. The City must identify priorities and seek new and creative ways of securing lands, including optimizing existing spaces to respond to emerging needs.
26 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Aging Facilities
and Parks
Pickering’s recreation facilities and parks are aging and
many are approaching the end of their functional life, such as the West Shore Community Centre, Chestnut Hill Developments Recreation Complex, Don Beer Arena, and single purpose halls/centres. This means that they are not
only unable to adequately accommodate modern demands
and uses, but that they require increasing investment and run a greater risk of failure.
Moving forward, an emphasis needs to be placed on flexible, multi-use spaces that are accessible to all (e.g.,
barrier-free), in locations that can be accessed by active
transportation and transit.
Outdoor
Activities and
Amenities
Demand for year-round outdoor recreation is on the rise.
From active sports that require courts and fields, to walking
and hiking on connected trail systems, to gathering together for picnics and community events. The City has been responding to these trends, but there is little additional space in its parks system to accommodate more.
In addition to new parks, park renewal projects are another
way that the City can address evolving needs, such as the recent improvements at Rotary Frenchman’s Bay West Park. Installing services (e.g., parking, water, electrical, shade, etc.) in appropriate park sites will help to maximum
functionality. Working with others to provide programming in
parks and public spaces can also be anticipated.
Equity,
Diversity,
Inclusion
Pickering’s population is becoming more diverse and the
range of needs is widening. The City has prided itself on offering a range of affordable activities and it is vital that Pickering’s parks, facilities, and programs continue to be designed to be welcoming and accessible to all, including
equity-seeking populations. Greater intentional efforts are
needed to include diverse populations in facility design, programs and services, as well as volunteerism and special events.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 27
Staffing Levels City staff are proud of the high quality and responsive
services they offer. Employees work well together with the primary goal of serving the public interest. However, there is a sense that public needs are growing faster than staffing levels, creating gaps in service (e.g., aquatics, adult
programming, service to growth areas, etc.). Creating a staff
resource plan based on approved levels of service that supports incremental increases in staffing levels was suggested as a way to build capacity in line with community needs. How the City uses volunteers and works with
community groups should also be reviewed.
Technology
and Innovation
There is an interest in exploring new technologies and approaches that can create efficiencies, improve service,
and measure performance. Digital and online services are
one example that can increase user convenience while creating efficiencies. Different approaches are also being used to reduce environmental impacts and respond to climate change.
Communication and Marketing
The City has established effective networks and means of promoting services and opportunities, but there is a sense that more can be done to create public awareness of
opportunities to participate and engage in recreation and
parks services. There is also a desire to improve internal communication among staff teams, from daily tasks to corporate priorities.
Safety and Security
Staff have witnessed an increase in the number of volatile and aggressive behaviours from those using community facilities. Existing policies and procedures should be
continually reviewed to ensure that intentional decisions are
made to maintain the security of customers and staff.
Funding and
Implementation
There is excitement as the City plans for Pickering’s new
growth, but concern that there may not be enough funding
to fully support these needs. Capital projects are currently impacted by rising capital construction costs and rising high interest rates, significantly impacting the timing and financing of these projects. Creative approaches,
partnerships, and optimization of available funding are
necessary to ensure that projects move forward in a timely fashion in line with population growth. Following through on corporate priorities will be one of the ways that the City’s performance is measured.
28 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 29
4.Strategic Framework
Pickering strives to be a complete, world class city...inclusive, connected, caring and prosperous. A key part of this corporate vision is recognizing the important contributions
that recreation and parks services make to the community’s health, wellbeing, and overall quality of life. These services also benefit other community priorities and the public realm, such as active transportation, climate change mitigation, social equity, economic growth and tourism, environmental health, and more.
Recreation and parks are worthy of sustained investment and enhanced focus. To
inform the recommendations of this Ten Year Plan – as well as future decisions related to its implementation – a strategic framework has been developed. This framework creates focus for this plan and is intended to provide direction through Council to City staff and related partners and stakeholder groups.
The proposed vision and core principles reflect the City’s values and express
fundamentally how Pickering will approach investment and set priorities related to recreation and parks facilities and services over the long-term. To ensure alignment, connections have been made to the City of Pickering Corporate Strategic Plan (2024-2028). The vision and core principles are complementary and should be read and interpreted as a set.
Vision for Recreation and Parks:
Responsive recreation and park services that foster
an active, inclusive, and connected community
where everyone can participate.
Core Principles for Recreation and Parks
Corporate Strategic Plan Corporate Key: Good Governance/Customer Service Excellence
1.Exceptional Service: We are proactive and accountable to resident needs throughexceptional customer service, responsive programming, proactive workforce trainingand development, and coordinated service delivery.
2.Financial Sustainability: Recreation and parks services offer intrinsic benefits toour community, but they must be delivered in a fiscally responsible manner. We willseek to balance the impact to taxpayers by pursuing creative funding approaches
that support our core services and community priorities.
30 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Core Principles for Recreation and Parks
Corporate Strategic Plan Priority 2: Advocate for an Inclusive, Welcoming, Safe & Healthy Community
3.Equity, Diversity, and Inclusion: We celebrate our diversity, support communitymembers with diverse needs, foster a sense of belonging, show respect for all, and
strive for fairness in our decision-making.
4.Community Connectivity and Belonging: We strive to remove barriers toparticipation that allow community members – including youth, seniors, newcomers,
and vulnerable populations – to feel connected and safe. In part, we achieve this
through affordable programs and events and accessibility to public spaces, parks,trails, and waterfront spaces.
Corporate Strategic Plan Priority 3: Advance Innovation & Responsible Planning to Support a Connected, Well-Serviced Community
5.Adaptable and High Quality Spaces: Recreation facilities and parks are critical
places and spaces that are welcoming for all. We aim to meet the needs of currentand future populations by optimizing existing assets and ensuring the timely deliveryof growth-related infrastructure.
Corporate Strategic Plan Priority 4: Lead & Advocate for Environmental Stewardship, Innovation & Resiliency
6.Environmental Leadership and Innovation: We demonstrate environmentalleadership by designing healthy, resilient, and sustainable parks and facilities andthrough responsible management practices. We seek opportunities to incorporateinnovation in community infrastructure and operational practices.
Corporate Strategic Plan Priority 5: Strengthen Existing & Build New Partnerships
7.Collaboration and Partnerships: We foster collaboration and communitypartnerships that help improve service delivery, build capacity, engage volunteers,
attain shared goals, and achieve our vision of an active, inclusive, and connected
community.
Corporate Strategic Plan Priority 6:
Foster an Engaged & Informed Community
8.Personal and Community Wellbeing: Participation and engagement in recreationcreates healthier individuals and communities. We include as many residents as
possible by supporting a wide variety of accessible programs and opportunities.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 31
C
32 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
5.Indoor Recreation Facilities
From large recreation complexes to local community spaces, Pickering’s recreation facilities are critical places where residents come together to participate in structured
and unstructured activities, develop skills, create friendships, and build the kind of community in which we all want to live.
This section contains a needs assessment for indoor recreation facility, with recommendations supported by inventories, usage data, trends, public input, and related initiatives. While a focus is placed on needs for the next ten years (to 2034), a
high-level, longer-term view is provided to 2042 given the amount of advance planning needed for major recreation infrastructure.
An inventory of indoor recreation facilities can be found in Appendix D, along with comparisons to provision levels in other municipalities. Other supporting materials, such as facility-specific trends, community input summaries, and usage analyses are
contained in Appendix E.
5.1 Recreation and Community Centres
The City of Pickering offers three different types and scales of community and recreation spaces, with a variety of programming and operating models across these facility types:
•recreation complexes
•community centres
•community halls
These spaces are supplemented by stand-alone facilities offering sport- or activity-
specific spaces, such as Dunbarton Indoor Pool, Don Beer Arena, Pickering Soccer Centre, Pickering Museum Village, etc. These facilities and their individual components are discussed in more detail in the sections that follow.
Descriptions of existing, planned, and proposed community recreation facilities are
summarized below, following the map of all municipal indoor recreation facilities in
Pickering.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 33
Figure 7: City of Pickering Municipal Indoor Recreation Facilities
34 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Table 3: Recreation Complexes in Pickering
Recreation Complexes Detail
Role / Description Recreation complexes are large-scale activity hubs that support a wide variety of indoor registered and drop-in City programming, casual use, rentals, and events that reflect the specific needs of area residents. They often include amenities such as indoor pools, gymnasiums, fitness rooms, space for youth/seniors, meeting spaces, and more.
Supply The City currently has one such facility at the Chestnut Hill
Developments Recreation Complex.
There are plans to build another recreation complex (and library) in Seaton, proposed to be designed in 2024 and opening by 2028/29.
Existing Facilities Chestnut Hill Developments Recreation Complex (CHDRC):
Opened in 1983, CHDRC (formerly Pickering Recreation Complex) is the City’s primary hub for indoor recreation activities. The venue includes two arenas (Delaney and O’Brien), pools, indoor racquet
sport courts, weight room, fitness studios, community rooms, banquet hall, and more. At 230,000 square feet, it is one of the largest municipal recreation complexes in the Greater Toronto
Area (GTA).
Several additions have been attached to the building since it opened, including squash courts and a second ice pad in the early 1990s, then doubles squash courts and fitness expansion in 2009. Most recent renovations included the Delaney Arena in 2015 and the main lobby and change rooms in 2021.
Planned Facilities Seaton Recreation Complex & Library (SRCL):
Identified as a top capital priority of Council in January 2024, the planned Seaton Recreation Complex & Library will serve the growing community of Seaton and surrounding areas. Located at Whitevale Road and Sideline 24, this facility is envisioned to include various program amenities including a 25M indoor pool with a separate warm-water leisure tank, fitness centre with a group fitness studio, full-size triple gymnasium, two indoor ice pads, walking track, multi-purpose program rooms, and library branch with a full suite of services. The introduction of an arena in this facility is subject to an Arena Strategy which is currently being undertaken in conjunction with this Ten Year Plan. This Plan has an opportunity to inform the functional program for this facility, as will subsequent community engagement and the Council approval process.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 35
Table 4: Community Centres in Pickering
Recreation Complexes Detail
Role / Description Community centres are smaller than recreation complexes, offering spaces that are used for City and community programming, meetings, and rentals such as activity rooms, gymnasiums, libraries, and more. Community centres are typically staffed (even if occasionally) and may be oriented to specific uses or markets (e.g., sports, youth, seniors, arts, etc.).
Supply The City currently has three (3) community centres including Dr.
Nelson F. Tomlinson Community Centre in Claremont (operated by a third-party), East Shore Community Centre, George Ashe Library & Community Centre.
A fourth community centre – the Pickering Heritage & Community Centre – will soon be under construction and scheduled to open in 2026.
Existing Facilities George Ashe Library & Community Centre (GALC):
George Ashe Library & Community Centre (formerly Petticoat Creek Community Centre) opened in 2000 and contains 3 multi-purpose spaces (used for City programs, gatherings, rentals, etc.)
and a branch library. Located along the Kingston Road corridor, the facility is well situated to serve both current residents and future growth.
East Shore Community Centre (ESCC):
The East Shore Community Centre (ESCC) was originally built as an elementary school in 1951, with a series of additions over the last 70 years. The facility contains a small gymnasium, a series of program and activity rooms, and a seniors centre (operated by the South Pickering Seniors' Club). The ESCC serves as the City’s primary hub for seniors programming. As the building is reaching end of its serviceable life, a replacement facility has been proposed
in the form of a Senior & Youth Centre included within the City Centre development proposal (funding has not yet been approved for this project, which has been deferred until 2028 for further
consideration).
Dr. Nelson F. Tomlinson Community Centre:
The Dr Nelson F Tomlinson Community Centre was built in 1997
within the Village of Claremont. The facility is co-located with a fire hall, newly renovated library branch, and community park. It contains a main hall (under-sized gymnasium), kitchen, and meeting room. The centre is managed under agreement by the Claremont & District Lions Club. The City has recently begun to offer direct programming to the community through this facility.
36 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Recreation Complexes Detail
Planned Facilities Pickering Heritage & Community Centre (PHCC):
The PHCC will celebrate the City’s rich heritage by bringing together a museum, library, and community centre under one roof on the upper site of the Pickering Museum Village (Highway 7 &
Greenwood Road). Construction on this facility has begun with opening anticipated in 2026.
This facility will serve many purposes, including as a new visitor’s
centre for the PMV, local history preservation, and providing a modern and accessible space for community groups (replacing the aging Greenwood Community Centre), programs, events, and exhibition space. PHCC is also designed to be zero-carbon, supporting Pickering’s journey of becoming one of the most sustainable cities in Canada.
Senior & Youth Centre (proposed):
There are longer-term plans to develop a Seniors & Youth Centre
within the City Centre campus; however, funding has not yet been allocated by Council to this phase of work and has been deferred to 2028 for further consideration. This project includes a double gymnasium, dedicated spaces for youth and seniors, programs rooms, library branch, and the potential to partner with developer for residential above. It is designed to replace the aging East Shore
Community Centre.
Table 5: Community Halls in Pickering
Recreation Complexes Detail
Role / Description Community halls are single purpose buildings typically containing
one or two meeting or activity spaces. These unstaffed buildings are primarily used for meetings, community events, and gatherings. Municipal programming is limited or non-existent. Many community halls are managed by volunteer associations and/or third-parties. They are typically older, repurposed facilities that are more commonly located in Pickering’s rural areas, receiving and intermittent use.
Supply The City currently has six (6) community halls including one that is operated by the City (West Shore Community Centre) and five that are operated by third-parties (Brougham Hall – currently closed –
and Greenwood Community Centre, Mt. Zion Community Centre, Whitevale Arts and Cultural Centre, and Whitevale Community Centre).
Note: despite their naming conventions, these facilities have levels of service more closely aligned with “community halls” than “community centres”
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 37
Recreation Complexes Detail
Existing Facilities West Shore Community Centre (WSCC):
West Shore Community Centre is located south of Highway 401. The centre is licensed to a nursery school on weekday mornings and available for community rentals on weeknights and weekends.
The facility was constructed in 1972 and does not meet contemporary standards for a municipal building.
Northern Community Halls:
In total, the City owns five (5) community halls located in the rural north. There are plans to replace the aging and inaccessible Greenwood Community Centre through the construction of PHCC, which will reduce this number to four (4), all of which are not operated by local community associations through lease agreements. These four buildings are each at least 100 years old and require significant capital investment to renew and maintain.
Planned Facilities none
38 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Existing Facilities
Many of the City’s existing recreation and community centres are reaching a point in their lifespan where they require significant renovation or rationalization. Implementing
capital plans to address these challenges will be a key focus for Pickering during the
course of this ten-year plan and beyond.
The Chestnut Hill Developments Recreation Complex is the City’s cornerstone recreation facility, offering a wide range of services to residents and visitors. It is ideally located within the City Centre area and – through strategic upgrades and renewal
projects – it will be capable of serving future residents for years to come.
However, given its age (41 years in 2024), the City’s 2024 Facility Renewal Strategy indicates that strategically planned renovations and upgrades will become more critical within the years to come. The City currently has tens of millions identified in its budget forecast for capital projects over the next ten years, including tennis court resurfacing
(2024), renovation of the O’Brien rink (2027), and renovation of the pool (2029).
Intensification and growing demand will also place pressure on the facility and may accelerate the need for renewal and/or expansion.
In the interim, some items for further consideration at the CHDRC are listed below, based on input and observations from the research and consultation phase. Specifically,
future renovations may:
•consider strategic re-purposing of under-utilized spaces to active programspaces (e.g., tenant spaces, etc.);
•explore opportunities to improve public circulation and access between the arenawing and recreation complex wing;
•given the complex’s premium location, consider relocating the indoor tenniscentre to another municipal recreation site (with consideration of an air-supported
dome) when it reaches end of life; these courts function more independently from
other spaces at the recreation centre and may benefit from another location thatcan support a minimum of four courts;
•add a gymnasium and flexible programming space should the proposed Senior &
Youth Centre project not proceed;
•improve and/or expand office space for Recreation Department staff; and
•consider additional recommendations for the arenas, as identified in the 2024
Arena Strategy.
The East Shore Community Centre is reaching end of its serviceable life according to the Facility Renewal Study. This centre is also not barrier-free and was not purpose-built for its current uses. A replacement for this facility has been proposed through the Senior & Youth Centre project within the City Centre development; however, approval of
funding for this project has been deferred until at least 2028. Should no replacement be
constructed in the next 5 to 10 years, significant capital investment can be anticipated to address the gradual deterioration of the ESCC. Replacing the building on the same site
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 39
is also possible, but would mean shuttering or displacing existing services during construction and is not recommended.
The 2024 Facility Renewal Study indicates that the West Shore Community Centre is
“beginning to show its age. Recent renovations and repairs have helped to extend its
serviceable life, but consideration should be given to longer term intentions for this site and particular facility, which will likely reach end of life in the next 20 years.” Reinvestment in this property is not recommended due to its limited utility and community benefit. It is likely that local demand can largely be absorbed within other
facilities (municipal, non-profit, private, etc.). Disposal of the full property is not currently
recommended given its co-location with West Shore Skate Spot, but rather a future use options report should be prepared to examine longer-term options for the property.
The City’s four northern community centres (Brougham Hall, Mt. Zion Community Centre, Whitevale Arts and Cultural Centre, and Whitevale Community Centre;
excluding Greenwood CC which is set to be replaced through the construction of
PHCC) are each at least 100 years old and require significant capital investment to renew and maintain, estimated to total over $5 million in capital costs over the next ten years. As recommended in the 2024 Facility Renewal Study, the potential closure and disposal of aging assets that would require significant costs to restore and maintain
should be considered as other alternatives become available in the vicinity (e.g.,
Pickering Heritage & Community Centre, Seaton Recreation Complex & Library, etc.).
These halls are not barrier-free, cannot accommodate a wide range of recreational activities, and are not conducive to City or other progressive programming. They serve as venues for occasional rentals, meetings, or small-scale community events. Most are
legacy facilities located in rural areas, serving smaller local markets. Although they are
not typically costly to operate as they rely on volunteer groups or third-party operators, capital renewal will be costly. Increasingly, these halls are viewed as liabilities and will require reinvestment if they are to remain in the inventory.
It is recommended that the City examine its community hall operating model and
prepare a study of options that examines local needs, capacity within area facilities, and
long-term requirements prior to undertaking significant investment. Looking ahead, the City may review the closure of underused halls, particularly where their functions can be accommodated within nearby facilities. The City may also explore opportunities to divest buildings and/or sites to others where appropriate and not needed for service delivery.
40 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Future Facilities
Recreation complexes and community centres serve residents of all ages and abilities. They are planned based on geographic accessibility and population, serving multiple
neighbourhoods. Facility components and programming may vary by location and will
be based on the specific needs of each community.
The trend has been toward larger, flexible facilities that support a wider array of activities, which is the model that the CHDRC was built upon and that the new Seaton Recreation Complex & Library carries forward. For planning purposes, provision targets
of one recreation complex for every 75,000 residents and one community centre per
35,000 residents are recommended; consideration may also be given to service radii of 2.0 to 2.5 km. To achieve this planning target, 1 additional recreation complex (the planned Seaton Recreation Complex & Library) and 1 additional community centre (the Pickering Heritage & Community Centre, opening in two years) are required within the
ten-year timeframe of this plan. As discussed earlier, several existing facilities should
also be enhanced or rationalized, including the planned replacement of East Shore Community Centre with the proposed Seniors & Youth Centre.
Table 6: Projected Long-term Needs for Recreation Complexes
Target: 1 per 75,000 pop. Now (2024) In Ten Years (to 2034) Further Ahead (to 2042)
Facility Needs 1.4 2.0 2.5
Current Supply (2024) 1 -- --
Surplus (Deficit) (0.4) (1.0) (0.5)
Potential Strategies n/a Proposed Seaton Recreation Complex
& Library
Consideration of needs in Northeast
Pickering
Population forecasts: 2024 = 103,000; 2034 = 149,000; 2042 = 185,000
Table 7: Projected Long-term Needs for Community Centres
Target: 1 per 35,000 pop. Now (2024) In Ten Years (to 2034) Further Ahead (to 2042)
Facility Needs 3.0 4.3 5.3
Current Supply (2024) 3 -- --
Surplus (Deficit) 0.0 (1.3) (2.3)
Potential Strategies n/a Pickering Heritage & Community Centre (opening 2026);
Senior & Youth Centre (replacement for ESCC)
future site in Seaton
Population forecasts: 2024 = 103,000; 2034 = 149,000; 2042 = 185,000
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 41
No provision target is provided for community halls as new halls are not recommended. These are legacy facilities that will be gradually phased out over time in response to community need and in keeping with responsible asset management practices.
Public interest is strong for new CRCs in growing communities. Looking beyond 2034, a
second community facility is planned for Seaton (Thompson’s Corners) and planning should also begin for a new recreation complex in Northeast Pickering (including securement of land). These projects are described in more detail below.
The Seaton Recreation Complex & Library will be the first multi-purpose recreation
complex built in Pickering since the Chestnut Hill Developments Recreation Complex opened in 1983. The co-location of multi-purpose spaces with other recreation and civic amenities is a common approach that facilitates a broad range of localized activities, cross-programming opportunities, and economies of scale.
Seaton Recreation Complex & Library
Based on a review of indoor recreation facility needs throughout this section, the future Seaton Recreation Complex & Library should be designed as a multi-use and multi-generational destination. Major recommended facility components include:
•Indoor Aquatics Centre: a 25-metre lane rectangular pool with a minimum of 6
lanes plus a separate leisure/therapeutic pool.
•Triple Gymnasium: a triple gym that is designed to an appropriate specificationincluding adequate playout dimensions, ceiling heights, flooring, and supportamenities.
•Fitness Centre: a training club with weight-training space and group fitness studios.
•Multi-Purpose Rooms: for meetings, programs, and gatherings that enable aflexible range of community uses.
•Arena: 2 NHL-size ice pads to replace the aging Don Beer Arena, as well as anindoor walking track (encircling an ice pad or the gymnasium).
•Outdoor Spaces: identified through the outdoor facilities assessment, including a
destination playground, skate spot, and more; the full extent of outdoor facilities willdepend on land availability.
•Library: space needs are supported through the Library’s Strategic Plan.
•General: provide sufficient spaces for casual social activity, change rooms,
washrooms, storage, office space, etc.
These components will be confirmed through architectural design to ensure that space exists on site to accommodate them along with vehicular parking and other servicing considerations.
In the interim, the City will be expanding programming to the newly constructed Rick
Johnson Memorial Park, including pre-registered, instructional programs for children
42 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
and youth, as well as weekly cultural events including small-scale concerts and movie nights in 2024.
With the ESCC reaching the end of its lifespan, a homebase is needed for seniors
programming. As of 2021, nearly one out of every three (31.5%) Pickering residents
were older adults 55 years of age or over. The proposed Seniors & Youth Centre is in a centralized and accessible location that offers convenient connections to higher-order transit that will help to support a flexible community hub within an area poised for growth in the future. It will be able to offer a wide range of activities that focus on active living,
health and wellness, education, arts, sports, and more. Beyond this location, youth,
seniors, and all-ages programming will continue to be delivered through other appropriate locations throughout Pickering in order to support inclusive and accessible opportunities. Flexible spaces where the entire population can become active and connected will be the preferred model over single-use or stand-alone facilities.
Looking beyond 2034, additional facilities will be needed in strategic locations to support
“complete communities”. Future opportunities are anticipated in both Seaton and Northeast Pickering.
1)The City has secured a second parcel of Seaton for a community centre in theThompson’s Corners neighbourhood. This site is located on 5th Concession
(east of Brock Road) and is on a site adjacent to a future secondary school. Thisis a longer-term project that would seek to supplement (and not duplicate)services planned for the Seaton Recreation Complex & Library. Planning anddesign of this facility has not yet been initiated, but should be a priority over thecourse of this Ten Year Plan. Based on a preliminary needs assessment, the
community centre could include a variety of activity spaces (e.g., multi-useprogram rooms, sport-specific spaces, outdoor amenities, etc.), but would notlikely include an indoor pool or arenas.
2)As the City’s next new community area, Northeast Pickering will require a fullrange of new community services and facilities, with consideration given to a new
recreation complex and arenas, among other community facilities. The NortheastPickering Secondary Plan is underway and includes recreation planning at a highlevel that will be proportional to the amount of population planned for that area(approximately 45,000 people). Development of this area is beyond thetimeframe of this Ten Year Plan.
It is also noted that, through the City’s Cultural Strategic Plan, a Performing Arts Centre has been proposed at the northwest corner of the CHDRC site. Funding has not yet been approved by Council for this long-term project, which would provide an auditorium and various spaces to host, display, and celebrate the arts both locally and beyond. The next term of Council is expected to advise on the timing and
implementation of this project.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 43
Recommendations – Recreation Complexes and Community Space
1.As a high priority, continue to proceed with the timely development of the SeatonRecreation Complex & Library. At minimum, this facility should be designed toinclude a 25 metre 6-8 lane rectangular pool and separate warm water leisure
pool, fitness centre and studios, full size gymnasium, walking track, multi-
purpose spaces, two arena pads, and library.
2.Prior to undertaking significant capital renewal projects, initiate planning for themajor long-term revitalization of the Chestnut Hill DevelopmentsRecreation Complex as supported by the City’s Facility Renewal Study. The
assessment should consider factors such as public input, asset management,
facility and program needs, related initiatives, site and partnership opportunities,potential funding sources, and more.
3.Seek to construct the proposed Seniors & Youth Centre in Pickering’s CityCentre within the ten-year horizon of this plan (prior to 2034). Once open, the
East Shore Community Centre should be closed and declared surplus, with
programming transferred to the new facility.
4.Prepare a business case for the expansion of youth programming and spacewithin the Chestnut Hill Developments Recreation Complex. This should beviewed as an interim measure prior to opening the Seniors & Youth Centre and
should be implemented through the repurposing of tenant spaces and/or under-
utilized areas (not a physical expansion to the building).
5.As part of the next Ten Year Plan (around 2034), initiate high-level planning forthe development of a second recreation facility (Thompson’s Cornerscommunity centre) within the Seaton community on lands owned by the City
(east of Brock Road, south of Highway 407).
6.Through the Northeast Secondary Plan process, designate land for communityfacilities suitable for the development of a future recreation complex and library.
7.Prior to undertaking significant investment in existing community halls (e.g.,West Shore Community Centre, Brougham Hall, etc.), prepare a study of options
that examines local needs, capacity within area facilities, and long-termrequirements. The assessment should be used to guide options, including sale,third-party-lease, and/or reinvestment. Closure and sale of underused halls thatrequire significant investment is possible, particularly where these functions canbe accommodated within a nearby facility. New community halls should be
discouraged.
8.As a general principle, design indoor recreation facilities to be flexible,accessible, multi-use (non-dedicated space, where possible), inclusive, and age-friendly community hubs. Consider models co-located with libraries and other
community uses. Locate these sites in highly visible locations with strong
pedestrian, cycling, and transit connections for convenient access. Involve thecommunity and stakeholders in the facility design process.
44 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
5.2 Arena Facilities
A comprehensive Arena Strategy has been prepared for the City of Pickering, the purpose of which is to guide planning and inform decisions for Pickering’s arena system for the next 10 years (to the year 2034). This strategy was recommended within the
2017 Plan to determine whether a net expansion to the City’s supply of ice pad and/or
relocation of an existing ice pad(s) is warranted based on prevailing market forces and arena operating conditions.
The Arena Strategy is presented under separate cover and includes considerable detail regarding arena usage, demand, operations, and approaches to provision. The
recommendations from the strategy are identified below; for additional detail, reference
should be made to the full 2024 Arena Strategy.
Recommendations – Arena Facilities (2024 Arena Strategy)
Update the participant-based target to 1 ice pad per 400 registered youthparticipants (residents ages 5 to 19) to support current and future ice surfaceneeds. This target applies to the arena supply and user base of arenas in bothPickering and Ajax, which must be considered together due to the cross-municipal
boundaries of core user groups.
Align arena demand to supply based on a need for 4 indoor ice padscurrently and 5 total ice pads by 2034. There is a surplus of ice at present;however, demand for ice sports will grow along with the population, graduallyeroding this surplus. Should programs be formed that attract new users to ice
sports (or if total registration changes in any substantial way), this forecast shouldbe revisited. Pickering and Ajax should share equally in addressing thesedemands.
Begin planning to replace Don Beer Arena (3 pads) with two (2) new ice padswithin the Seaton community no later than 2029 (next five years). The
preferred site is the Seaton Recreation Complex & Library. If the selected sitecannot be expanded to a quad pad arena through a future phase of construction, asecond site may be required for a multi-pad arena beyond 2034, possibly inNortheast Pickering.
Maintain at least 2 ice pads at Don Beer Arena until such time as the newtwin pad facility is open. In the interim, reduce capital spending at Don BeerArena unless necessary for structural or legislated safety requirements.Consideration may also be given to removing ice from Rink 1 to limit capital andoperating expenses (non-ice activities may be permitted, as appropriate) and/orlimiting off-peak hours of operation. Once deemed surplus, dispose of Don Beer
Arena property and use proceeds to offset funding of replacement infrastructure.
Continue to operate two ice pads at the Chestnut Hill DevelopmentsRecreation Complex for the foreseeable future. Capital requirements are
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 45
Recommendations – Arena Facilities (2024 Arena Strategy)
identified in the City’s long-term forecast, with further technical considerations within Section 4.1 of the Arena Strategy.
Continue to promote recreational skating and drop-in programs at the ChestnutHill Developments Recreation Complex and consider providing additionalopportunities (e.g., Parent & Tot Skating, Parent & Tot Stick/Puck, Ticket Ice, etc.)to improve participation levels, accessible options for residents, and off-peakrevenue enhancement. Expand programming to the new arena when built.
Consider adjustments to the City’s ice allocation practices to ensure that theyreflect local demand, provide adequate ice time to priority categories, and generateefficiencies. The submission of annual registration figures (including residency) byuser groups should be strictly enforced as a condition of approval. Further, the Cityis strongly encouraged to work with the Town of Ajax to ensure that allocation
practices and amounts are consistently applied across both jurisdictions to create
a fair and transparent approach to allocation. Should demand for ice rentals growover time, ice sport organizations should be encouraged to make efficient use ofnon-prime time hours and to adapt their programs to accommodate all participants,such as adjustments to practices, rosters, and scheduling.
Through future Recreation & Parks Plan updates, consider longer-term arenasneeds (post-2034), with a focus on growth areas such as Northeast Pickering aswell as a capital revitalization strategy for the Chestnut Hill DevelopmentsRecreation Complex arenas. It will be important for the City to secure sufficientblocks of land to support major recreation infrastructure within the Northeast
Pickering community.
46 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
5.3 Indoor Pools
Pickering operates two indoor aquatic pool locations, each of which offers a slightly different aquatic experience through their respective designs and in turn influences how the City programs them or how conducive they are for aquatic sports and activities. The
City’s largest pool is located within the CHDRC and was built in 1983. The other is a
smaller facility attached to Dunbarton High School, which opened in 1972.
Municipal Indoor Pools in Pickering
Indoor Pools Detail
Role / Description Indoor pools offer a wide range of shallow and deep water swimming instruction and activities to the general public. Facilities may contain one or more indoor pool basins that are generally available year-round.
Pools may be part of recreation complexes or co-located with schools, although the former model of provision is preferred as it offers greater public access and operational efficiencies.
Supply The City currently has two (2) indoor pool facilities including a two-tank
at the Chestnut Hill Developments Recreation Complex and a single tank facility at Dubarton Pool (attached to Dunbarton High School)
There are plans to build an aquatic centre as part of the proposed
Seaton Recreation Complex & Library.
Existing Facilities Chestnut Hill Developments Recreation Complex:
The CHDRC’s indoor aquatic centre opened in 1983 and consists of a 25-metre 8-lane tank and a separate shallow warm-water tank. Both
are used for instruction and recreational swimming, while the largerrectangular tank is also used for lane swimming, training, andcompetition. It is home to the Pickering Swim Club, which has a broad
membership.
Dunbarton Pool:
This pool is attached to Dunbarton High School and is owned and
operated by the City on lands owned by the Durham District School Board. This pool consists of a 25-metre 6-lane tank. The City has access to the pool in the morning and after 5pm and on weekends, with the school accessing the pool during school hours. The pool is primarily used for swimming instruction and club rentals, but lacks many support amenities and conveniences (e.g., barrier-free change rooms, viewing areas, complementary activity spaces, etc.) that are available at the CHDRC.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 47
Indoor Pools Detail
Planned Facilities Seaton Recreation Complex & Library:
The Seaton Recreation Complex & Library will serve the growing community of Seaton and surrounding areas. Preliminary designs include a 25-metre 6-lane indoor pool with a separate warm water
leisure tank, in addition to complementary activity and support spaces. A detailed design process is being initiated this year, with the goal of opening in 2028/29.
Existing Facilities
Aging infrastructure is a significant concern for the City’s indoor pool facilities as they
are an average of 47 years old and reaching a typical lifespan for a facility of this type (50-70 years).
For the CHDRC pool, the 2024 Facility Renewal Study indicates that “Minor repairs and
upgrades have been completed on the pool at CHDRC over the years, but the space has never received a complete renovation, and could be considered overdue.” While the
complex still has considerable life left, a recommendation has been made to begin long-term planning for its revitalization, which would also include the indoor pool facility.
In the interim, several repairs to the CHDRC pools are planned to be undertaken in 2029, with the goal of extending their life and avoiding the need for a lengthy shutdown prior to the planned pool at the Seaton Recreation Complex & Library coming online. As
the aquatics facilities at CHDRC are much larger than what is offered at Dunbarton Indoor Pool, they are critical to supporting municipal and community programming. By advancing the construction of an indoor pool in Seaton, it is anticipated that programs can be temporary shifted to accommodate a major revitalization project (currently
identified for 2029 in the City’s long-term capital forecast) as the CHDRC pools are
showing their age and could benefit from accessibility improvements.
Dunbarton Indoor Pool was built in 1972 and – despite benefitting from several renovations in the last 15 years – its structural elements are expected to be within their last 10 years of serviceable life. The City’s 2024 Facility Renewal Study notes that:
“Given the age and use of the building, additional renovation is not expected to be
practical or cost effective, meaning that replacement at this or another location will need to be considered.” Any capital projects on the pool or school could impact both operations, thus coordination with the Durham District School Board is vital. It is understood that the school board does not currently have any major capital work
planned for the site.
It is recommended that the City undertake a study to examine future programming needs and potential capital replacement of the Dunbarton Indoor Pool. This study should consider the need for this facility to remain operational during any extended shutdown of the CHDRC and should be completed following a minimum of one year of
the Seaton Recreation Complex & Library being fully operational.
48 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Future Facilities
The rate of population growth in Pickering lends support to the inclusion of indoor aquatic centres within all new recreation complexes and, where appropriate, community
centres. A provision target of one indoor pool location per 45,000 persons is
recommended, with any new or redeveloped aquatic centres including multiple tanks to accommodate expanded programming, where possible.
To achieve this target, one additional indoor pool location (multiple tanks) is required within the ten-year horizon of this plan – this facility is recommended as part of the
Seaton Recreation Complex & Library. Another indoor aquatic centre will be required to
serve growth beyond this timeframe, possibly in Northeast Pickering.
Table 8: Projected Long-term Needs for Indoor Pool Sites
Target: 1 per 45,000 pop. Now (2024) In Ten Years (to 2034) Further Ahead (to 2042)
Facility Needs 2.3 3.3 4.1
Current Supply (2024) 2 -- --
Surplus (Deficit) (0.3) (1.3) (2.1)
Potential Strategies n/a Proposed Seaton Recreation Complex & Library
Consideration of needs in Northeast Pickering
Population forecasts: 2024 = 103,000; 2034 = 149,000; 2042 = 185,000
The CHDRC pool is currently the largest in Durham Region and often hosts regional-level meets (it is not certified for provincial or higher-level competition). In 2024, the Town of Whitby began construction on a new sports complex including a 25-metre 10-lane pool that will offer additional opportunities for athletic training and competition
within the region. Given the regional nature of high performance sport, it is not
necessary for Pickering to duplicate the same level of service (e.g., 10 lanes) in Seaton, but rather could consider a pool design that satisfied community-level needs. This supports the provision of a multi-tank pool within the Seaton Recreation Complex & Library, consisting of a 25-metre tank with 6 to 8 lanes and a separate warm-water
leisure pool designed to allow barrier-free entry. Modern pool designs include multiple
tanks with different water temperatures, universal change rooms, and barrier-free accessibility.
Looking beyond 2034, there is anticipated to be sufficient demand to support a recreation complex and multi-tank indoor aquatic centre within the future Northeast
Pickering community. Indoor recreation needs should be validated through ongoing
planning of this community and future updates to this Ten Year Plan.
Pickering has convenient access to modern 50-metre long-course indoor pools in both Markham and Scarborough – these facilities serve a broad market and require
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 49
extensive partnerships and unique funding models to support. A 50-metre pool is not recommended for Pickering at this time.
Recommendations – Indoor Pools
9.Provide multi-tank indoor aquatic centres within all new recreation complexes.
A 25-metre tank with 6 to 8 lanes and a separate warm water leisure pool are
recommended as part of the planned Seaton Recreation Complex & Library.
10.Prioritize the revitalization of the Chestnut Hill Developments RecreationComplex indoor aquatic centre as part of the proposed facility revitalizationstrategy.
11.Undertake a study to examine future programming needs and potential capital
replacement of the Dunbarton Indoor Pool. This study should consider theneed for this facility to remain operational during any extended shutdown of theChestnut Hill Developments Recreation Complex and should be completedfollowing a minimum of one year of the Seaton Recreation Complex & Library
being fully operational.
50 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
5.4 Gymnasiums
There are no regulation gymnasiums within the City’s facility inventory, although some spaces are used for court sports (sometimes on a modified basis). The City has agreements with local school boards to use selected gymnasiums on evenings and
weekends in order to support registered and drop-in programming, including many
youth activities.
Table 9: Gymnasiums in Pickering
Gymnasiums Detail
Role / Description Gymnasiums offer open court areas for sports (e.g., basketball, volleyball, badminton, pickleball, etc.), registered and drop-in programs, rentals, special events, community meetings, etc.
Supply The City currently has a variety of spaces that accommodate indoor
court sports on a modified basis, although few would meet the contemporary definition of a gymnasium:
•East Shore Community Centre – offers a small, non-regulationsize gymnasium
•Dr. Nelson F. Tomlinson Community Centre – contains a hallthat can be used for active sports (non-regulation size)
•CHDRC – the banquet hall has been used for pickleball,although active sports are a secondary use
•Pickering Soccer Centre – under the dome is a futsal court thatcan also be used for sports such as volleyball, badminton, etc.(operated by Pickering FC)
Additionally, the City has agreements with local schools to use selected gymnasiums (Dunbarton High School, Highbush Public School, Pine Ridge Secondary School, and St. Mary Catholic
Secondary School) outside of school hours.
Existing Facilities All gymnasium-like spaces in City community facilities are non-
regulation and under-sized, limiting their utility.
Planned Facilities There are plans to build gymnasiums as part of the proposed Seaton Recreation Complex & Library. New schools may also offer future opportunities for community and municipal use afterhours.
Two gymnasiums are considered in the proposed Senior & Youth Centre (City Centre), a project that has been deferred until 2028 for further consideration.
Gymnasiums are essential to supporting year-round organized sports programs and the
City is striving to increase its capacity to offer more sports programming to match with
growing demand. Over the past few years, the City has witnessed a remarkable surge
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 51
in the popularity of various sports programs, with many programs having extensive wait
lists. Drop-in (pre-registered) activities such as youth sports and pickleball are especially
in high demand. The lack of regulation-size gymnasiums is limiting the City’s ability to address these needs in an equitable manner.
The new sport courts at the Pickering Soccer Centre are well used for futsal (the Provincial championships are being hosted here), as well as sports such as volleyball.
Pickering FC (which operates the facility under agreement) is currently working with the
City to improve the flooring so that it can be used for other sports such as pickleball.
Whereas older delivery models left the responsibility for gymnasium provision to schools, it has now become common practice for municipalities to include large gymnasiums within recreation complexes. This is driven by increased needs for
municipal program delivery, particularly for youth and increasingly for seniors, as well as
challenges with gaining reliable access to some school facilities throughout the year.
There is no gymnasium at the CHDRC and the City of Pickering has a lower supply of municipal gymnasiums in comparison to other communities (benchmarking average of 1:38,200). If this provision rate was applied to Pickering, there would be a need for four
(4) gymnasiums by 2034. Going forward for Pickering, it should be a best practice to
include a gymnasium as part of any new recreation complex (e.g., Seaton, etc.) and gymnasiums should also be strongly considered within future community centres (e.g., Seniors & Youth Centre).
To maximize program flexibility and allow use for sports such as basketball and
volleyball, a triple gymnasium specification should be incorporated in the design of the
proposed Seaton Recreation Complex & Library. The design of the gymnasium should allow for sufficient playout distance to the structural walls, have an appropriate ceiling height, and preferably use a sprung-wood flooring system. Amenities such as a scoreboard, spectator viewing, and generous storage would significantly improve the
user experience and functionality of the space.
In terms of accommodating the growing sport of pickleball, this plan recommends expanded opportunities for both outdoor (see Section 3) and indoor play using a variety of approaches. Pickleball is currently played indoors at the CHDRC Banquet Hall (4
courts) and though occasional use other community centre and school spaces for a total
of 51 hours per week (drop-in and registered programming). To inform the City’s provision of indoor facilities, a guideline of one pickleball court per 10,000 residents is comparable to approaches in other municipalities (based on an average provision of one gymnasium per 40,000 persons and assuming that each gymnasium can accommodate
4 courts).
Applying this measure to Pickering, the City will be able to meet its current target of 10 indoor courts through upgrades at the Pickering Soccer Centre (up to 6 courts and 42 hours/court per week) and also its 2034 target (15 courts) through the development of
the Seaton Recreation Complex & Library. School gymnasiums and other spaces within
the City’s inventory also offer opportunities to accommodate occasional use, as well as the potential for non-municipal providers which are becoming more common across the Greater Toronto Area.
52 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Recommendations – Gymnasiums
12.Provide gymnasiums within all new and redeveloped recreation complexes
(e.g., Seaton, etc.) and consider their provision within appropriate community
centres (e.g., Seniors & Youth Centre, etc.). A triple gymnasium (FIBA regulati on) is recommended as part of the Seaton Recreation Complex & Library .
13.Provide one indoor pickleball court for every 10,000 residents, with a target of 15 indoor courts by 2034. The City will be able to meet its current target of 10 indo or
courts through upgrades at the Pickering Soccer Centre (up to 6 courts) and
CHDRC (4 courts) and also its 2034 target (15 courts) through the development of the Seaton Recreation Complex & Library.
14.Where additional access is required, expand agreements with local schoolboards to offer programming within school gymnasiums and other community
spaces within Seaton and future growth areas.
5.5 Indoor Fitness Spaces
The City operates a fitness centre at the CHDRC. Additionally, the City offers group fitness classes at locations such as East Shore and George Ashe community centres.
There are also many private sector fitness and health/wellness providers within Pickering.
Table 10: Fitness Centres in Pickering
Fitness Centres Detail
Role / Description Fitness centres provide opportunities for registered members to workout using weights and equipment and to participate in fitness classes. They are typically complemented by other activity spaces such as indoor swimming pools.
Supply The City currently has one fitness centre location at the CHDRC.
There are plans to build another fitness centre in Seaton, proposed to be designed in 2024 and opening by 2028/29.
Existing Facilities Chestnut Hill Developments Recreation Complex (CHDRC):
This fitness centre contains cardio and weight-training equipment along with fitness studios that offer floor-based programs. The facility is spread across two levels and also contains a small three-
lane walking/running track.
Planned Facilities Seaton Recreation Complex & Library:
The Seaton Recreation Complex & Library is currently proposed to include an equipment-based fitness centre with several studio spaces.
There are no widely accepted service level targets for municipal fitness centres based on population. Market economics guides private sector decisions as to whether they invest in equipment-based fitness centres; however, most municipalities view fitness studios for group programs as a core level of service while others – like Pickering – go further by operating fitness centres based on a wellness philosophy.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 53
Municipal fitness centres are in a more competitive environment as the private sector
is now entrenched in the low-cost/discount membership market that used to be
dominated by municipalities and YMCAs.
While it is clear that there is competition in the fitness market from the private sector, the City has made a conscious decision to compete directly in this industry. In order to remain competitive in the marketplace, the City regularly invests in fitness equipment
and the overall customer experience. Part of Pickering’s advantage is its ability to co-
locate fitness centres with indoor pools and create convenient hubs where aquatic, fitness, and wellness activities are complemented by other spaces and services. This model differentiates the City’s fitness product from other providers and offers an affordable option for most residents.
On this basis, there is strong rationale to include fitness space within future recreation
complexes. These spaces will complement other components, offering user convenience and generating economies of scale. Inclusion of publicly-accessible indoor walking tracks within recreation complexes (elevated above a gymnasium or ice pad) is also recommended to reinforce opportunities for year-round physical activity
and dry-land training for sports groups. The provision of a second fitness centre and
studio space is recommended as a part of the Seaton Recreation Complex & Library.
15.Provide fitness centres and studios within all new and redeveloped recreationcomplexes (including the Seaton Recreation Complex & Library) to support thedelivery of health and wellness programming. Consider the provision of indoor
walking tracks (free public access) within new recreation facilities, where
appropriate.
Recommendations – Indoor Fitness Spaces
54 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
5.6 Indoor Sport Facilities
Addressed in this section are additional sport-specific facilities that the City and its partners offer to the community, including:
•Squash courts
•Racquetball/handball courts
•Indoor tennis courts
•Indoor soccer/turf fields
Note: Indoor pickleball is ideally played on gymnasium courts and is considered within the gymnasium section of this report.
Table 11: Indoor Sport Facilities in Pickering
Indoor Sport Facilities Detail
Role / Description Indoor sport facilities are purpose-built spaces that accommodate specific sports and activities, often on an exclusive use or membership-driven model. These facilities typically support sports on a year-round basis.
Supply The City and its partners currently offer.
•8 squash courts (including 6 international single courts and 2doubles courts) at the CHDRC
•2 racquetball courts (also used for handball) at the CHDRC
•4 indoor tennis courts at the CHDRC
•1 indoor turf field (divisible into up to four small-sided fields) atthe Pickering Soccer Centre
Existing Facilities Chestnut Hill Developments Recreation Complex (CHDRC):
This facility is home to one of the largest municipal squash, racquetball, and indoor tennis court complexes in the GTA. Courts are accessed via membership and pay-as-you-go models.
Pickering Soccer Centre:
The Pickering Soccer Centre is the City’s sole indoor turf facility, which is a municipal capital facility that is operated by Pickering FC under agreement. The facility offers a certified FIFA regulation soccer field that can be partitioned into smaller fields, an associated sprint track, and futsal/sport courts.
Planned Facilities None, although there may be potential for smaller-scale sport facilities at future recreation complexes.
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Squash & Racquetball Courts
Current and projected levels of usage for squash are adequate to support the continued provision of courts at the CHDRC, but insufficient to recommend additional facilities at
this time. As a premier site for squash in Ontario, Pickering is currently providing one
squash court per 13,000 residents, a rate nearly eight times greater than comparator communities (one per 105,000). Usage of squash courts and membership levels should be monitored to ensure that these spaces are optimized.
Pickering is currently providing one racquetball court per 51,500 residents, a rate more
than nine times greater than comparator communities (one per 475,000). Participation
in racquetball lags well behind squash and many municipalities that had racquetball courts in their supply have been gradually converting them to other uses due to low demand. Following years of declining utilization, Pickering’s 2017 Plan recommended that one or more of the City’s racquetball courts be repurposed to another use (guided
by public input) to enhance use of the space to benefit the broader community. This
recommendation was met with opposition from members and in 2018 Council afforded the Racquetball Hub of Durham Region committee an opportunity to increase membership, usage, and revenues to reach City established targets over a 2-year period ending December 31, 2019. Despite the goals not being achieved over this
period, in 2020 Council did not undertake further public consultation and did not support
repurposing a racquetball court. As of 2023, the number of racquetball and handball players remains below past levels. The findings from the previous plan remain appropriate and it is recommended that staff prepare a business case to repurpose one racquetball court at the CHDRC for other in-demand uses (e.g., group fitness space,
etc.) and seek out additional community input on the matter.
Indoor Tennis
There are 4 indoor tennis courts at the rear of the CHDRC. These courts are available to members and non-members, and classes and lessons are also offered. Members have access to the fitness centre, swimming pool, and/or squash/racquetball courts
depending on the membership category. The courts are well used most of the year, but
less so during the summer months when the sport shifts outdoors.
The 2017 Plan found a surplus of indoor tennis courts and declining utilization levels (and efforts were subsequently made to trial the use of pickleball on these courts, unsuccessfully). From our experience in other communities, each indoor court should
be able to support a minimum of 75 members; programs and lessons are in addition to
this amount. Membership has since increased to 117 players in 2023 as demand for the sport has grown in recent years and there have been informal proposals to expand to other locations. There remains capacity for greater use at the existing indoor facilities.
No new indoor tennis courts are recommended within the ten-year timeframe of this
plan; however, should the City receive a proposal to install a season air-supported
dome over outdoor courts at no cost to the municipality, this may be considered this through the partnership framework identified in Section 2.7 and Appendix F.
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It is also noted that a planning process for the long-term revitalization of the CHDRC has been recommended to be initiated during the next ten years. Given the large footprint that the existing indoor courts account for at the CHDRC – coupled with its high
land value and related plans that Pickering has established for the site and surrounding
City Centre lands – consideration may be given to relocating the indoor courts to another accessible location within Pickering in the longer-term (with consideration of an air-supported dome). The optimal use of this site may be more fully considered through the City Centre project and/or planning of the future parks and recreation facility sites.
Indoor Turf Fields (Pickering Soccer Centre)
The Pickering Soccer Centre is located in southeast Pickering and offers a FIFA regulation soccer field that can be partitioned into smaller fields, an associated sprint track, and futsal/sport courts. It is operated by Pickering FC under agreement with the City (it is a municipal capital facility). The air-supported dome was opened in 2014 and a
new fabric was installed in 2023 (along with a new multi-use sports court) following
heavy damage from a winter storm.
Pickering FC indicates that its membership has grown since the pandemic, especially in younger ages and high performance streams. The club is projecting its membership to increase by 19% by over the next three years, generating greater demand for both
outdoor fields and indoor turf time. One of the Club’s biggest challenges is the lack of
indoor space as the group uses 98% of the hours on the Pickering Soccer Centre’s turf field during the winter season. Given these trends, there is very little capacity on the indoor turf field for non-soccer community rentals (e.g., other soccer clubs, football, softball, ultimate frisbee, lacrosse, cricket, rugby, etc.).
Trends are shifting to greater year-round use and more and more sports and activities
that can use these facilities are demonstrating sustainable growth. As the operator, Pickering FC administers rentals at the Pickering Soccer Centre and is not bound by municipal allocation policies. Creating opportunities for other sports and organizations to access the field, as well as utilization of the field for a broader variety of recreation
programs during off-peak times, are opportunities that the City should consider in
partnership with the facility operator.
The Pickering Soccer Centre has been a significant success for the local club and City. Indoor turf fields such as this are becoming more common, with the average level of provision being approximately one municipal turf facility per 100,000 residents. The City
should work with Pickering FC and other organizations to monitor the demand for indoor turf facilities (including the collection of utilization and registration data from the Pickering Soccer Centre and community organizations) to allow for a needs assessment for a second indoor turf facility beyond 2034 within the Seaton or Northeast Pickering community areas (e.g., Thompson’s’ Corner recreation site, future district park, etc.).
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Recommendations – Indoor Sport Facilities
16. Based on a monitoring period that has not yielded satisfactory improvements, prepare a business case to repurpose one racquetball court at the CHDRC for other in-demand uses (e.g., group fitness space, etc.) and seek out additional
community input on the matter.
17. Consideration may be given to relocating the Chestnut Hill Developments Recreation Complex indoor tennis courts to another accessible location within Pickering in the longer-term, possibly through an air-supported dome. This is a matter that may be more fully examined through the recommended recreation
complex facility revitalization study, the City Centre project, and/or planning of
the future parks and recreation facility sites.
18. Encourage wider community access to the Pickering Soccer Centre field by working with Pickering FC to create an allocation framework and/or scheduling options that provide other youth-based organizations with access to the turf field
within prime, shoulder, and non-prime times.
19. Monitor the demand for indoor turf facilities and examine the potential to develop a second indoor turf facility beyond the timeframe of this Ten-Year Plan.
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5.7 Requests for Other Types of Facilities
Future requests for municipal participation in capital projects not identified in this plan can be expected. There are several other types of facilities that fall outside of the traditional municipal scope of provision, but may offer benefit to area residents and
contribute greatly to the range of local services.
The City’s Community Grant program can be used to support minor requests (typically under $3,000) from non-profit organizations. To evaluate and respond to more significant unsolicited requests, a formal partnership framework should be used to guide the parameters for these relationships. Municipal involvement in such proposals must
be transparent and consider overall municipal priorities and the City’s capacity to
participate in such projects.
The evaluation of potential major capital partnerships should require the proponent to provide information such as (but not limited to):
• a comprehensive needs analysis • a comprehensive business plan
• the proponent’s financial capacity • a demonstration of the sustainability of the project
• detailed evidence of community benefits
• full risk analysis
In cases where the City has decided to participate and/or invest in a proponent-initiated
project, they will seek innovative solutions and/or partnerships (using a standardized partnership framework – see Appendix F) that enhance access to residents.
Recommendations – Other Indoor Spaces
20. Adopt a partnership framework to evaluate and respond to major capital proposals from community organizations, with consideration given to overall
municipal priorities and the City’s capacity to participate in such projects. A
sample framework and criteria are identified with this Ten Year Plan (see appendix).
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6.Outdoor Recreation and Park Facilities
Pickering’s parks contain a wide variety of sport and community recreation amenities, from courts to sports fields, playgrounds to splash pads, and much more. Demand for
outdoor activities has been on the rise, underscoring the need to maintain and enhance outdoor amenities for current and future populations.
This section contains a needs assessment for outdoor recreation and park facilities, with recommendations supported by inventories, usage data, trends, public input, and related initiatives.
An inventory of outdoor recreation facilities can be found in Appendix D, along with comparisons to provision levels in other municipalities. Other supporting materials, such as facility-specific trends, community input summaries, and usage analyses are contained in Appendix E.
6.1 Soccer and Multi-Use Fields
Soccer and multi-use fields are a core element of the City’s parks system and come in a
wide variety of sizes. Fields are predominantly used for soccer, but some can also
accommodate other fields sports such as football, rugby, and field lacrosse.
The City of Pickering currently permits 46 soccer and multi-use fields to sport organizations, including some fields on school properties. The supply of permitted outdoor soccer and rectangular fields is well distributed throughout Pickering’s urban
area. This inventory consists of
•2 lit artificial turf fields
•4 lit full size fields
•13 unlit full size fields
•11 9v9 (intermediate) fields
•16 7v7 (mini) fields
To account for extended playing capacity, lit artificial turf and lit grass fields are assumed to be equivalent to 3.0 and 1.5 unlit natural fields, respectively. As a result, Pickering has an effective supply of 52 unlit equivalent (ULE) soccer fields. The City is presently providing one field (ULE) per 2,000 residents, a higher rate than the comparator group (one field per 2,700 persons). These fields may be supplemented by
school fields, which are permitted through the school boards but tend to be of lower quality.
The indicators suggest that the number of rectangular sports fields is adequate at the present time, but demand is expected to increase as the City grows, generally in line with population growth.
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A city-wide provision target of one soccer/multi-use field per 100 registered youth and adult participants is recommended, a slight adjustment from the one per 90 players identified in the previous Ten Year Plan. This target responds to contemporary
standards of play and considers appropriate usage/rest periods for fields.
The number of registrants in the two largest organizations (Pickering FC and Durham Dolphins Football Club) was approximately 2,750 in 2023, an increase of 20% since 2018. This growth has largely been driven by increases in the number of soccer players with Pickering FC. Beyond these two groups, the total number of players using
Pickering fields is not available. It is recommended that the City require reporting on
membership levels as part of the annual permitting process to improve tracking of demand and usage.
A population-based standard can be used in the interim until accurate data on the number of players using Pickering’s soccer and multi-use fields is known (future Ten
Year Plan update). Recognizing that most larger fields are well used, but that there is
some capacity within smaller or neighbourhood-based fields, a provision target of one field (unlit equivalent) per 3,000 persons is recommended to be applied to future growth.
Looking ahead, additional fields will be required to address growth-related needs. Applying the provision target to the forecast of 46,000 new residents by 2034 equates to
a growth-related need for 15.3 new fields over the next ten years.
Table 12: Projected Long-term Needs for Soccer and Multi-use Fields
Target: 1 field (ULE*) per 3,000 pop. Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 52* 15.3* more
Potential Strategies n/a - new field development in Seaton
- expanding capacity within existing parks
- greater capacity through new
artificial turf fields
- working with partners
- multi-field potential at Greenwood Conservation lands and/or District Park (longer-term)
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply * Each lit soccer field is equivalent to 1.5 unlit fields (ULE) and each lit artificial field is equivalent to 3.0 unlit fields (ULE).
As the City intensifies, sports fields are less likely to be provided in mixed use areas due to their large size, requiring users to travel outside of their community to access these facilities. The greatest short-term opportunity for new fields will be through park development in new communities such as Seaton. To address the full range of future
needs, sports field development must focus on improving existing fields and parks (e.g.,
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adding lights, installing artificial turf, expanding fields, etc.), acquiring land, and working in partnership with owners of other large sites to bring more fields online.
Full-size fields with artificial turf that can support competitive play are in particularly high
demand in Pickering, with several stakeholders seeking more as these fields can
support more hours of use throughout and at the beginning and end of the playing season. Artificial turf presents a viable option due to its greater capacity for use (e.g., multiple sports, extended seasons, inclement weather, etc.) and lower maintenance cost, therefore reducing the need for land acquisition and operational resources. The
needs of all field sports should be considered when designing new artificial turf fields.
At this time, planned soccer field development includes 8 fields (8.5 unlit equivalents), a little more than half of what is recommended by 2034. This includes:
• One (1) full lit field in Seaton (P-123).
• One (1) full unlit field in the proposed Hydro Corridor Park north of Kingston Road (pending approval from Hydro One).
• Six (6) 7v7 and/or 9v9 fields in Seaton (P-106, P-109, P-124, and P-131) and in
the proposed Hydro Corridor Park north of Kingston Road (pending approval
from Hydro One).
Potential for additional fields may be realized through park redevelopment (e.g., converting an underutilized diamond at Maple Ridge Park to a soccer field) and future development opportunities such as at the Greenwood Conservation lands and future
district park site – both of these sites would be good candidates to support a lit artificial
turf field and multiple additional fields. The provision of an artificial turf field may also be considered at Seaton Recreation Complex & Library (or the community facility planned for Thompson’s Corners) should there be sufficient land. A variety of field sizes are needed in order to comply with Ontario Soccer guidelines and additional artificial turf
fields will be necessary to accommodate growing needs.
Should demand exceed the number of planned fields, the City may consider working more formally with school boards to permit suitably-sized school fields as schools are developed in new communities such as Seaton. This may require Pickering to allocate additional operating funding toward field maintenance, in agreement with the respective
school boards.
The City may receive requests from sport organizations for fields and specialized amenities (e.g., scoreboards, on-site washrooms and dressing room facilities, spectator seating, etc.). to support competitive and high performance teams. Proposals that go beyond the City’s established levels of service will typically require an appropriate cost-
sharing agreement that maintains a level of public access to the site.
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Recommendations – Soccer and Multi-use Fields
21.Provide approximately 15 additional soccer and multi-use fields (unlitequivalents) over the next ten years to address growth-related needs. New fieldsmay be developed within community parks (with multiple fields per site) and
appropriate neighbourhood park sites, as well as in partnership with other land
providers such as schools. Where possible, a focus should be placed on full sizefields (both lit and unlit) and artificial turf fields as these provide greater capacityfor community use. In addition to new fields in the Seaton community,opportunities should be sought to enhance field supplies within existing parks
(e.g., conversion of under-utilized assets such as in Maple Ridge Park).
22.Through the annual permitting process, track the number of registrants usingPickering sports fields (soccer, football baseball, cricket, etc.). At a minimum,data to be collected should include age (youth, adult, etc.) and residency(Pickering, other, etc.). This data will enable trend tracking, support future
demand analysis, and inform allocation practices.
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6.2 Ball Diamonds
The City of Pickering currently permits 27 ball diamonds to sport organizations. The diamonds are well distributed throughout Pickering’s urban area, with additional diamonds in rural areas. This inventory consists of
• 4 hardball diamonds (3 with lights)
• 23 softball diamonds (9 with lights)
To account for extended playing capacity, lit diamonds are assumed to be equivalent to 2.0 unlit diamonds. As a result, Pickering has an effective supply of 39 unlit equivalent
(ULE) ball diamonds. The City is presently providing one diamond (ULE) per 2,640 residents, a higher rate than the comparator group (one diamond per 3,900 persons).
The indicators suggest that the number of ball diamonds is adequate at the present time, with available capacity for more use and/or repurposing of under-utilized diamonds. Pickering’s increasing ethnic diversity may mean a slower growth trajectory
for baseball in the future, a sport that has more limited appeal amongst many newcomer groups. However, some demand can be anticipated as the City grows as there will be a need to enhance accessibility for those in the new Seaton community.
A city-wide provision target of one ball diamond per 100 registered youth and adult
participants is recommended. This target responds to contemporary standards of play.
Pickering Baseball Association (minor ball) is the largest user of diamonds in Pickering, responsible for over 40% of all booked hours. The minor ball club reported an overall membership of 493 youth in 2023, down from a peak of 811 in 2016 – a 39% decrease. In addition, there are approximately six adult slo-pitch leagues that use City diamonds;
current registration for these organizations is not known, but in 2016 was estimated to
be approximately 1,075. With some registrants potentially not returning since the pandemic, it is likely that the number of adult players is slightly less than it was eight years ago.
Beyond the minor baseball association, the total number of players using Pickering
diamonds is not available. It is recommended that the City require reporting on
membership levels as part of the annual permitting process to improve tracking of demand and usage.
A population-based standard can be used in the interim until accurate data on the number of players using Pickering’s ball diamonds is known (future Ten Year Plan
update). Recognizing that several diamonds are not currently used to capacity, a
provision target of one diamond (unlit equivalent) per 8,000 persons is recommended to be applied to future growth.
Looking ahead, additional diamonds will be required to address growth-related needs and improve geographic distribution with improved service to new communities.
Applying the provision target to the forecast of 46,000 new residents by 2034 equates to
a growth-related need for approximately six (6) new diamonds over the next ten years.
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Table 13: Projected Long-term Needs for Ball Diamonds
Target: 1 diamond (ULE*) per 8,000 pop. Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 36* 5.8* more
Potential Strategies n/a -new field development in Seaton
-optimizing existing diamonds
-multi-field potential atGreenwood Conservation landsand/or District Park (longer-term)
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply
*Each lit ball diamond is equivalent to 2.0 unlit diamonds (ULE).
New diamonds will be required to serve the Seaton community in particular and many of
these new fields will not be required until later in the ten-year cycle of this plan.
Currently the City has plans to develop a lit ball diamond in Dave Ryan Community Park (P-123) in Seaton (2.0 unlit equivalents). Two additional lit diamonds (or 1 lit and 2 unlit diamonds) would be required to satisfy the balance of needs by 2034. Adult-size diamonds are recommended for maximum flexibility, with one diamond suited for
hardball.
Due to their size and buffer requirements (especially hardball fields), ball diamonds can be challenging to fit within many parks and are best provided within community or district parks where clustered fields can better support league play and tournaments. Where appropriate, supporting amenities should be provided including, but not limited
to, parking and washrooms. The future Greenwood Conservation lands have potential
to serve as a destination for field sports with multiple ball diamonds.
Future demand should be addressed through a combination of strategies, including new field development, optimizing use of diamonds, and upgrading existing diamonds to fit with needs. As sports fields are less likely to be provided in strategic growth areas due
to their land-based requirements, upgrades to existing diamonds may be necessary to
address localized needs in some areas, including expanding under-sized fields where possible. Strategic diamond improvements may assist in dealing with potential shortfalls and should be further assessed through discussions with local baseball organizations.
Despite ten-year growth-related needs amounting to nearly six (6) new diamonds, the
City should also consider strategic opportunities to repurpose under-sized and under-
utilized diamonds in areas with needs for other park amenity types. Examples include the ball diamonds at Maple Ridge Park, Lookout Point Park, and Greenwood Park, which may be considered further through park-specific planning exercises for conversion to other community and/or sport amenities or even informal open play
spaces.
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Recommendations – Ball Diamonds
23. Provide approximately 6 additional ball diamonds (unlit equivalents) over the next ten years to address growth-related needs. New fields should be developed within community parks (with multiple fields per site where possible), as well as
in partnership with other land providers where appropriate. These needs can be
largely satisfied through planned development at Dave Ryan Community Park (1 lit diamond) and future development on the Greenwood Conservation lands (multiple lit diamonds), including consideration of both hardball and softball needs.
24. Evaluate opportunities to repurpose surplus ball diamonds and to align the
diamond supply and distribution with demand. Some candidates for conversion include under-utilized and/or under-sized diamonds at Maple Ridge Park, Lookout Point Park, and Greenwood Park.
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6.3 Cricket Pitches
The City of Pickering provides one cricket pitch at Alex Robertson Park.
With Pickering’s diverse population, the City can expect pressure for cricket facilities to continue to increase. This growth will also be supported by the establishment of new
leagues for youth and shorter game formats that broaden the appeal of the sport.
Furthermore, cricket viewership is rapidly increasing in Canada (a recent report estimated that there are 5 million or more cricket fans across the nation7) and the sport is being reintroduced into the Olympics in 2028.
While the City’s current level of provision (one field per 103,000 residents) is slightly
better that the average of the comparator communities (one field per 136,300 persons),
the large land base associated with cricket fields is a deterrent to their broad provision in many municipalities. In Brampton, a community with a large South Asian and Black/West Indian population, this per capita ratio is closer to one field per 40,000 persons.
For the immediate ten year needs of this plan, a target of one cricket field per 75,000 is
recommended; this target reflects the growing appeal of the sport amongst Pickering’s diverse communities. By 2034, a total of 2 cricket fields are recommended, one more than is currently available.
Table 14: Projected Long-term Needs for Cricket Fields
Target: 1 cricket field per 75,000 pop. Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 1 0.9 more
Potential Strategies n/a - new field development in Seaton
- working with partners
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply
The cricket field at Alex Robertson Park is somewhat under-sized, but is suitable for youth and most levels of adult play. This location – which is on leased land from Ontario
Power Generation – should be maintained for the time being but may not be a suitable long-term solution. While it is common to consider cricket as an interim use for lands with a longer-term purpose, this discourages investment and can be detrimental to the growth of the sport.
Additionally, another field is recommended for the Seaton area to improve accessibility
to new residents and to provide greater opportunities to support the sport in growing communities. Due to the amount of land required – it takes 2+ hectares to accommodate a cricket field that is up to 150 metres in diameter (plus buffers) – the
7 CulturalIQ. Cricket – The Fastest Growing Sport in Canada: A National Study. 2022.
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only sites able to potentially accommodate the sport are the Greenwood Conservation lands to the east of Seaton or the future District Park north of Highway 407. The first of these parks to be developed (likely the Greenwood Conservation lands) should include
a regulation size cricket field. Some communities have had success overlaying a cricket
field across two soccer fields, with the pitch placed between them. An overlay allows for one sport to be played at a time; cricket demand is highest on weekends, while soccer groups have historically concentrated their programming on weekdays.
Recommendations – Cricket Fields
25.Include a regulation cricket field within the future Greenwood Conservation
lands or other suitable location capable of serving Seaton and surrounding area.
Consideration may be given to designing the pitch as an overlay across two full-size soccer fields.
6.4 Tennis Courts
Pickering provides 24 lit tennis courts at nine parks. With the exception of the tennis
courts at Claremont Memorial Park (2) and Village East Park (2), the City’s tennis courts are operated by neighbourhood clubs that provide tennis programming and leagues to members. Indoor courts are available at the CHDRC; however, summer usage of this facility is lower as many players prefer to play outdoors.
Due to its international appeal, strong gender and age balance, low injury risk, and high
profile Canadian professional athletes, tennis is a sport that should retain its popularity in Pickering for the next decade and beyond. The City has indicated that all of its tennis clubs have experienced an increase in membership participation over the past few years and entered into updated lease agreements with the clubs in 2023.
New tennis courts will be needed to address growth. Recognizing this, the City has
recently redeveloped the courts in Dunmoore Park, is planning to add 1 new tennis court at Shadybrook Park (shared with pickleball courts and accessible through the Amberlea Tennis Club), and has plans to construct 1 new public tennis court and 4 pickleball courts in the future Dave Ryan Community Park (P-123) in Seaton. Tennis
and/or pickleball courts are also planned for Titanium Green (P-107) in Seaton and
there may also be the potential for outdoor courts at the site of the planned recreation facility on Thompson’s Corners.
The City is providing tennis courts at a slightly greater rate (one per 4,300 persons) than the comparator communities; however, there are fewer public courts available in
Pickering (4 public courts, representing 17% of all courts) than most other similar
communities as the majority of courts (20 club courts) are operated by clubs with exclusive rights to operate tennis programming. A provision target of 1 tennis court per 4,500 residents (public and club-based courts) is recommended, with a focus on improving the distribution of unrestricted public courts. Application of this target finds a
need for 9 more courts to 2034, largely to serve growth in the Seaton area.
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Table 15: Projected Long-term Needs for Tennis Courts
Target: 1 tennis court per 4,500 pop. Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 24 9 more
Potential Strategies n/a - new court development in Seaton (public and club)
- strategic investments in existing parks (e.g., Shadybrook Park)
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply
The following strategies are recommended to address the need for 9 new courts, with consideration of equitable distribution and opportunities for casual/public play:
• add 1 new tennis court to the tennis complex at Shadybrook Park, in partnership
with the Amberlea Tennis Club;
• develop 2 public tennis courts at the future Dave Ryan Community Park (P-123) in Seaton;
• develop 2 public tennis courts at Titanium Green (P-107) in Seaton;
• develop 2 public tennis courts at P-086 in Duffins Heights; develop 4-5 club tennis courts at another site in Seaton (possibly at the community facility planned for Thompson’s Corners); and
• work with the Greenwood Tennis Club to confirm the long-term need for these courts (usage is not tracked but though to be low) and consider shifting use to the aforementioned new courts planned for Seaton, allowing this space to be converted to other uses as defined by a future design process for this park.
Within South Pickering, there is a good distribution of courts with several located near
growing mixed use areas. There are limited opportunities to establish new tennis courts in this area, aside from expansions at some locations. Should membership decline significantly at existing clubs, consideration should be given to converting the courts to public use (e.g., tennis, pickleball, etc.).
Due to its burgeoning popularity, the City added pickleball lines to its four public tennis
courts to allow for shared use. City courts managed by community clubs are not ideal candidates for shared pickleball use due to the level of use and expectation of tennis club members. As discussed in the next section, new dedicated pickleball courts are needed and the shared-use model is not appropriate for most sites. As such, new tennis courts should be developed for tennis-only use (but may be co-located with other sport
court uses) and be in groups of two or more.
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Recommendations – Tennis Courts
26. Expand the number of public tennis courts (lit where possible) in growing communities through new court development in Seaton (4 courts at 2 parks) and Duffins Heights (2 courts at 1 park). Courts should be designed for tennis only,
but may be co-located with other sport courts as part of a complex.
27. Consider the development of an outdoor tennis club complex (4-5 courts) at the site of the community facility planned for Thompson’s Corners. The complex should be operated by a community-based club under agreement with the City, allowing for public access during specified hours and/or low use periods. The
potential for an air-supported dome to allow for year-round use of the courts
(possibly as a long-term replacement for the indoor courts at the Chestnut Hill Developments Recreation Complex) may be considered further through a business plan that examines demand, partnerships, financial performance, and related factors.
28. Work with the local tennis club to confirm the long-term need for the courts at Greenwood Park and consider shifting use to new courts planned for Seaton, allowing this space to be converted to other uses as defined by a future redesign process for this park.
6.5 Pickleball Courts
The City does not currently offer any dedicated outdoor pickleball courts, but does allow for the sport on 11 shared courts. Six (6) courts are shared with tennis on a first-come first-served basis (Village East Park and Claremont Memorial Park) and five (5) courts are on multi-use pads requiring portable pickleball nets.
Plans are in place to expand this inventory by adding one new tennis court at
Shadybrook Park that be converted to use as four (4) pickleball courts; it will be accessible to club members. In addition, the City has been working with the pickleball community to expand opportunities to play the sport indoors (see Section 2.4).
Strong interest has been expressed by pickleball enthusiasts for more courts in
Pickering, both indoor and outdoor, with demand for court time exceeding the facilities
available within the City. In particular, the lack of dedicated outdoor courts for the sport has been an issue as the playing experience on shared courts is not ideal. For example, many shared courts require users to bring and/or set up portable nets, do not have dedicated times for the sport, and lack other supporting amenities that are becoming
standard with new court complexes (e.g., proper fencing, wind screens, permanent
lines, etc.). Dedicated courts are becoming commonplace in many municipalities and should form the primary focus for Pickering’s future capital projects.
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Looking ahead, the City currently has plans to construct:
•four (4) dedicated pickleball courts in the Dave Ryan Community Park (P-123) in
Seaton;
•six (6) dedicated pickleball courts at the south end of Diana, Princess of WalesPark in place of the southernmost soccer field (requires approval from HydroOne);
•four (4) pickleball courts shared with tennis at the Amberlea Tennis Club inShadybrook Park (2024); and
•two (2) multi-use courts shared between pickleball and basketball at both
Beechlawn Park (P-019) and at a future park in Duffin Heights (P-087).
With the number of older adults expected to increase at a faster rate than the overall population, sustained demand for pickleball can be anticipated. Due to the smaller size of the courts, it is possible to fit two to four pickleball courts within the same footprint of one tennis court.
With the rapid rise of the sport, very few municipalities have yet to establish firm targets
for outdoor pickleball court provision. The benchmarking exercise indicates that Pickering offers more pickleball courts per capita than the average municipality, however, most of these are shared courts and dedicated courts are becoming more common due to the level of demonstrated demand and ability to support organized play.
A goal of providing one outdoor pickleball court (dedicated or shared) per 5,000
residents is similar to tennis and represents a reasonable target for future planning at this time. This target suggests a need for 30 total outdoor courts by 2034 (dedicated and shared), 19 more than are currently provided.
Table 16: Projected Long-term Needs for Pickleball Courts
Target: 1 pickleball court per 5,000 pop. Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 11 (shared/overlay) 19 more (mostly dedicated)
Potential Strategies n/a -dedicated court development incommunity parks
-shared court development inneighbourhood parks
-one to two club court locations(Diana, Princess of Wales Park,Thompson’s Corners)
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus
any current shortfall in supply
Going forward, the primary focus of pickleball court provision should be on dedicated
courts (generally 4 or more courts per site) within community park sites to
accommodate organized play. Although a lower priority, multi-lined shared courts can be effective to support casual play and may continue to be provided on an equitable
72 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
basis through new construction and court rehabilitation/conversion projects within neighbourhood parks, being mindful of setback requirements to nearby houses.
Additionally, the City lacks an outdoor multi-court (4 or more courts) site for pickleball in
South Pickering. Working alongside Pickering Pickleball Club, the City has been
investigating possible options for the construction of outdoor and indoor courts. The preferred location for this activity is at a park that offers access to nearby parking and washrooms and that is adequately separated from nearby residential properties. Given the mixed ownership of several park sites (and related development restrictions), lack of
available open space, and the amount of buffer space required from adjacent uses,
there are very few sites that could adequately accommodate a larger outdoor pickleball venue in South Pickering. The City is currently pursuing the development of six courts in Diana, Princess of Wales Park on lands owned by Hydro One. Opportunities for this to become a club-managed location (similar to Pickering’s tennis clubs) should be
explored8.
To summarize, recommended provision strategies to accommodate approximately 19 new outdoor pickleball courts to 2034 include:
• four (4) courts shared with tennis at the Amberlea Tennis Club in Shadybrook
Park (2024);
• six (6) dedicated pickleball courts at the south end of Diana, Princess of Wales Park in place of the southernmost soccer field (requires approval from Hydro One), possibly operated in partnership with a club;
• four (4) dedicated courts at the planned recreation facility in Thompson’s Corners, possibly operated in partnership with a club;
• four (4) dedicated courts in the Dave Ryan Community Park (P-123) in Seaton;
and
• consideration of painting lines on selected multi-use basketball courts at locations such as Beechlawn Park (P-019) and selected neighbourhood parks in Duffins Heights and Seaton (e.g., P-086, etc.).
Should the project in Diana, Princess of Wales Park not proceed – or should a second site for pickleball be required in the longer-term – Petticoat Creek Conservation Park may be considered further. Not only does PCCP meets the general locational criteria, but pickleball was one possible option site identified in the City’s preliminary review. The City is currently investigating the possibility of entering into a long-term lease or
management agreement with TRCA for this property.
In confirming and establishing new locations and provision strategies, a site evaluation process should be undertaken with consideration of the following criteria:
8 One useful metric for more formalized play has been established by the City of Mississauga, which uses minimum membership thresholds for the creation of new tennis and/or pickleball clubs: 2 to 3 courts = 100 members; 4 to 5 courts = 200 members; and 6 to 8 courts = 300 members.
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a) Pickleball courts may be established through conversion of under-utilized amenities or new construction. The City may establish minimum standards for court surfacing.
b) Courts should be developed in pairs (ideally oriented north-south), using fixed
pickleball net equipment and fencing to support dedicated use. Consolidating courts is more economically efficient, will help to leverage community partnerships, and can better support organized play.
c) Shared use courts (e.g., pickleball, tennis, basketball, etc.) are less desired and
will not typically be supported as long-term options.
d) Court locations must consider potential for noise impacts on adjacent properties9.
e) Nearby parking, washrooms, and/or lights for night play are desired, but will only be considered within appropriate park types.
f) Enhanced levels of service (such as winds screens, acrylic surfacing, and other
supporting amenities) may be considered through sponsorship or other partnership opportunities (e.g., community-based clubs).
Recommendations – Pickleball Courts
29. Target the development of up to 19 new outdoor pickleball courts by 2034, with a focus on dedicated courts in appropriate locations. Projects should have consideration to the site evaluation and design criteria identified in this plan. The
City should continue to work with pickleball organizations to monitor and assess
the need for additional dedicated court complexes over time. Potential capital projects include:
a. developing six (6) dedicated courts at the Diana, Princess of Wales, possibly operated in partnership with a club;
a. developing four (4) dedicated courts at the site of the planned recreation
facility in Thompson’s Corners, possibly operated in partnership with a club;
b. developing four (4) dedicated courts in the Dave Ryan Community Park (P-123) in Seaton; and
c. consideration of painting lines on selected multi-use basketball courts at
locations such as Beechlawn Park (P-019, future) and selected neighbourhood parks in Duffins Heights and Seaton (e.g., P-086, etc.).
9 For a 2-court complex with no noise mitigation, guidelines from Pickleball BC suggest a minimum setback is 50-metres. This increases to 85 to 115m in a typical community park setting depending on the number of courts and noise attenuation measures. These guidelines should be considered as the city establishes or reinvests in outdoor pickleball sites.
74 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
6.6 Basketball Courts
With several new half courts being added to new parks, the City’s supply of outdoor basketball courts has increased in recent years to 17 (10 full courts and 7 half courts). More courts are planned to be added to growing areas, particularly in the Seaton
community.
Due to community requests, outdoor basketball courts have become a typical level of service in most neighbourhood parks within Seaton, to the point where some have been added following the parks’ initial construction. The provision target established in the previous ten year plan would seem to have been insufficient to address the needs of
growing communities that have large youth populations and fewer opportunities for
driveway basketball.
To respond to growing demand, the City currently has plans to establish basketball courts in 11-12 park sites:
• Seaton: Half courts at P-105, P-106, P-108, P-112, P-125, P-127 and multi-use
courts at P-109 and P-124; there may also be the potential for one or more
courts at the Seaton Recreation Complex & Library.
• Duffins Heights: Full court at P-087.
• South Pickering: Full court at Beechlawn Park (P-019).
Court sizes are influenced by space availability; however, there is a general guideline of
providing half courts in neighbourhood parks (and appropriate village greens) and full courts in community parks. Additional features for consideration include, but are not limited to, seating, shade, paint markings for other hard surface activities, landscaping, and appropriate sound buffering.
In setting a reasonable target to guide court development, geographic distribution is a
key determinant as courts are viewed as neighbourhood-level amenities that are walkable for most residents. On this basis, an 800-metre radius can be used to identify potential gaps in distribution and for planning in new community areas. Using this measure, the Liverpool neighbourhood (west of Liverpool Road) is currently
underserved and additional courts will likely also be required along the Kingston Road
corridor to serve future residential development. The City should evaluate existing and future park sites to provide outdoor basketball courts in these areas.
A balanced distribution of courts should also be a goal for Seaton as this area develops. Currently, some proposed court sites (e.g., P-105, P-106, P-108, and P-109) are in
close proximity to one another. Consideration should be given to reallocating one or
more courts to parks in underserved areas (such as the southern portion of Lamoureax and/or the northern portion of the Wilson Meadows neighbourhood), subject to space availability.
To guide future provision, a target of one court (full or half) per 5,000 residents is
recommended. Application of this target suggests a need for 13 more courts by 2034.
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Planned court development will account for 10-11 of these sites, while the gaps noted above – if addressed – will alleviate the balance of these needs.
Table 17: Projected Long-term Needs for Basketball Courts
Target: 1 basketball court per 5,000 pop. Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 17 (10 full, 7 half) 13 more
Potential Strategies n/a - new court development in Seaton and mixed use areas
- address gaps in geographic distribution (Liverpool, Kingston Road corridor)
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply
Recommendations – Basketball Courts
30. Develop approximately 13 additional outdoor basketball courts by 2034 within growing communities (e.g., Seaton) and under-served areas (e.g., Liverpool, Kingston Road corridor) based on an 800-metre service radius. Half courts should generally be considered for neighbourhood parks (and appropriate village
greens) and full courts for community parks.
76 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
6.7 Splash Pads and Outdoor Aquatics
Pickering offers three (3) splash pads located at Amberlea Park, Beachfront Park, and Foxtail Green. Each site contains a range of interactive features such as spray posts, spray creatures, waterfalls, and water jets. Facilities are unstaffed and available for
community use during the warmer months. The City does not have usage data for its
splash pads as they are casual use amenities.
Splash pads appeal to young children and families looking for a fun and affordable way to cool off during the warmer weather months. These facilities complement other recreation facilities at their respective parks including playgrounds, seating, shade
areas, and seasonal washrooms (amenities vary by location). With the increase number
of heat alerts, splash pads were also identified as an important consideration through the City’s Climate Change Adaptation Plan.
The City does not provide any additional outdoor aquatic facilities such as outdoor pools at this time. There is a splash pad and outdoor pool at TRCA-operated Petticoat Creek
Conservation Park; however, these facilities have been closed in recent years due to
needed repairs.
Several requests have been received for splash pads in recent years and they have become a standard level of service in many newer parks across Ontario. Pickering’s supply of three splash pads (one per 34,300 residents) is well below comparable
communities (one per 12,400 persons) and local residents have been seeking additional
investment in this area.
The previous Ten Year Plan recommended a provision target of one splash pad per 3,000 children ages 0 to 9 years. Based on 2021 Census data, this translates into a per capita target of one splash pad per 27,500 persons (all ages), a rate that lower than
comparable municipalities. For long-term planning purposes, it is recommended that
this target be adjusted to one per 20,000 persons (all ages) to account for the younger population anticipated to move into the Seaton community. Application of this provision target yields a need for five (5) additional splash pads within the next ten years.
Table 18: Projected Long-term Needs for Splash Pads
Target: 1 splash pad per 20,000 pop. Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 3 5 more
Potential Strategies n/a -new park development in Seaton
-evaluation of existing parks in
South Pickering
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply
In providing Pickering’s children and families with suitable access to splash pads, two key factors should be considered:
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 77
•that splash pads are equitably distributed across the city so that they are withinreasonable proximity of all residential communities; a service radius of 1.0 km
(within new community areas and mixed use areas) to 1.5 km (within established
areas) may be used to measure this; and
•that splash pads are available within higher-order parks that serve as communitydestinations (busier parks can sustain larger splash pads with more features and
have other necessary support amenities such as shade, seating, washrooms,parking, etc.), such as community parks.
On this basis, notable gaps in distribution can be found in the City Centre, Duffins Heights, and Wilson Meadows neighbourhoods. The City is currently planning to install a splash pad in Stonepay Village Green (Duffin Heights, P-086), which will address one
of these priority areas. Additionally, splash pads are proposed for several parks in Seaton, including the Seaton Recreation Complex & Library, P-123 (Dave Ryan Community Park), P-107 (Titanium Green), and P-131. Beyond 2034, it can be anticipated that additional splash pad development will be required in the Mount Pleasant area at minimum.
Additional gaps may present themselves based on community growth and staging of development. Should the City remove the splash pad at Beachfront Park due to operational issues, another splash pad should be developed south of Highway 401, ideally in proximity to growth areas. Furthermore, although there are no splash pads within Pickering’s rural communities, provision is a low priority in these areas due to
their small and dispersed populations.
In consideration of parks south of Highway 401, the City will be working with the TRCA to advance the Petticoat Creek Conservation Park project. Currently operated by the TRCA as a day use area, the park contains a number of recreational amenities, including a splash pad and outdoor pool that has been closed for several years due to
mechanical and infrastructure challenges. A preliminary study identified the potential for enhanced park amenities within non-regulated areas (e.g., event spaces, sport courts, possible replacement of the outdoor pool, winterized washrooms, etc.) and year-round programming.
A park-specific planning study is recommended to more fully define future uses and
costs for Petticoat Creek Conservation Park, including a decision on whether to remove the outdoor pool or replace it with a modern facility. Although the pool has historically been a draw to the park, its shape and design make it very difficult and costly to operate and lifeguard. With many outdoor pools across Ontario now reaching the end of their lifecycles, many communities are rationalizing pool replacement against issues such as
rising costs, stagnant visitation, staffing challenges, and short operating seasons. As an outdoor pool would represent a new level of service for the City of Pickering and would potentially impact programming and staffing at its indoor pool facilities, the operation of an outdoor pool at this or any other location would be viewed as a lower priority within the scope of this Ten Year Plan.
78 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Recommendations – Splash Pads
31.Continue with plans to construct 5 new splash pads / water play areas in Duffins Heights and the Seaton community by 2034; additional sites in Seaton and possibly City Centre will be required longer-term. Should the City remove the
splash pad at Beachfront Park, it should be replaced at another location south of
Highway 401 in proximity to growth areas.
32.The provision of an outdoor pool would represent a new level of service for the City and the reconstruction of the pool at Petticoat Creek Conservation Park is being considered.
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6.8 Outdoor Ice Rinks
The City currently permits the creation of outdoor natural ice winter skating locations within three of its parks: Claremont Memorial Park (maintained by the City on a rink pad) and both Whitevale and Greenwood Parks (maintained by volunteers with support
from the City). All three of these locations are in Pickering’s rural areas.
These rinks support leisure skating (organized sports are prohibited) within cold weather months; however, due to changing weather patterns and volunteer commitments, not all rinks are operated every year. When not being used for skating, these amenities may serve other uses during the warmer months (e.g., unstructured play, open space, etc.).
During the pandemic, additional outdoor rinks were a popular request in many Ontario
municipalities. Unfortunately, climate change, unpredictable weather, and fluctuating volunteer commitments are having an impact on the viability of natural rinks.
Temperature is the primary determinant of whether outdoor skating is feasible. Refrigerated outdoor rinks offer a safer and more reliable skating surface, and are also
available for an extended season. Covering an artificial rink would provide for an
extended season (60+ days per year, depending on weather and temperature variation) and improved ice conditions (and shade in the summer). However, artificial rinks represent a significantly higher level of service both in terms of capital and operational resources. For example, artificial rinks require support buildings for washrooms, change
rooms, and mechanical systems; opportunities to co-locate them with other community
facilities (such as arenas) or in community parks should be considered to generate efficiencies and enhance geographic accessibility. Operationally, refrigerated rinks require a greater level of care and maintenance, with regular ice checks, flooding, and activity scheduling much like municipal arenas. Indoor arenas remain the preferred
venues for organized play and public skating opportunities.
While there are no designated sites for outdoor skating in South Pickering or Seaton, City Council has identified the development of a refrigerated skating rink/water feature at City Centre Park to be a key capital priority. Applying the target of one refrigerated rink per 100,000 persons, this location would be sufficient to meet community needs
over the next ten years. The use and reliability of this refrigerated rink should be tracked
to inform the demand and viability of another location in the future (beyond 2034).
Table 19: Projected Long-term Needs for Refrigerated Outdoor Skating Rinks
Target: 1 refrigerated outdoor rink per
100,000 pop.
Now
(2024)
In Ten Years
(to 2034)
Current Supply / Facility Needs 0 1 more
Potential Strategies n/a - proposed for City Centre Park
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply
80 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
A future phase of the concept plan for Claremont Memorial Park included consideration of a covered and/or artificial rink. This site is on well water and does not have the capacity for a significant water draw, though water can be brought in to support the
setting of a rink. Additionally, this park is used for several area events and activities
during the summer months. There is an insufficient market to support the initial and ongoing investment associated with a refrigerated rink; however, consideration should be given to redeveloping the existing rink with a roof (but not enclosed) to provide an all-weather, four-season venue for ice skating, floor sports, camps, and events.
Support of the volunteer-based neighbourhood rink program may be continued for
current sites as long as they remain viable. New sites for natural ice rinks are not a priority at this time, but may be considered in appropriate parks that have access to water, lighting, and support buildings, as well as a suitable volunteer base.
Recommendations – Outdoor Ice Rinks
33.Continue with plans to develop a refrigerated skating rink/water feature within
City Centre Park.
34.Consider the development of an appropriately-sized covered multi-use pad inClaremont Memorial Park to support extended use for floor sports (ball hockey,skating, etc.), camps, and events. The ice pad should not be refrigerated.
6.9 Skateboard Parks
The City of Pickering recognizes the importance of skateboarding as a form of recreation for the physical and creative well-being of its citizens of all ages and skill sets. The City’s only full size skateboard park is at Diana, Princess of Wales Park, located behind the Chestnut Hill Developments Recreation Complex. The park is at end
of life and users are supportive of replacing it with a new park in a safer, more visible
location.
In an effort to expand local offerings, the City recently opened its first skate spot, adjacent to the West Shore Community Centre in 2022. Pickering also offers a mobile skate park during the summer months, with financial support initially provided by the
Canadian Tire Jumpstart Foundation. Ramps, rails, banks, and other skate elements
are set up outside the trailer to create mobile skate spots throughout the City. In 2023, this service was offered at West Shore, St. Mary’s High School, and Dr. N. Tomlinson Community Centre in Claremont.
The City does not provide any dedicated BMX bike parks or pump tracks, which are
becoming more common in many municipalities. In Pickering, these uses are generally
accommodated within skateboard parks.
Usage of skateboard parks is not tracked as they are mainly casual use amenities. However, City staff have noted increasing demand for pre-registered skateboard
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 81
programs, especially for those interested in learning to skateboard. With only two designated outdoor permanent locations for skateboarding activities, a mobile skate park was implemented to address needs as the City’s future network of skateboard
parks takes share.
The planning and development of skateboard parks is led by the Skateboard Park Strategy 2017. This strategy examined current and forecasted participation rates in action sports and made recommendations toward the development of a network of skate park opportunities throughout the City to serve a variety of age groups and skill
levels. Location criteria was established and evaluations of selected sites were
completed.
The Skateboard Park Strategy describes four different park typologies, including:
• Skate Dots: these are generally less than 1,500 sf (the size of a street corner)
• Skate Spots: these are generally 1,500 sf to 6,000 sf (the size of a half basketball court)
• Neighbourhood Skate Parks: these are generally 6,000 sf to 12,000 sf (the size
of a tennis court)
• Community Skate Parks: these are generally 12,000 sf to 25,000 sf (the size of a hockey rink)
Recommendations outlined in the Skateboard Park Strategy (developed in consultation
with the local skateboarding community) include adding approximately 24,000 square
feet of skateable area within South Pickering (through 1 community skate park and 5 skate spots) and over 33,000 square feet of skateable area within Seaton (through 1 community skate park and 3 skate spots) by 2029. Sites should be equitably distributed to maximize accessibility for area residents.
Table 20: Projected Long-term Needs for Skateboard Parks
Target: see Skateboard Park Strategy 2017 Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 2 (1 skate park and 1 skate spot)
1 more skate park
Up to 7 skate spots
Potential Strategies n/a - new park development in Seaton
- evaluation of existing parks in South Pickering
- replacement of existing skate park
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply
82 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
On this basis, the City currently has plans to develop the following outdoor skateboard locations:
•A new skate spot in South Pickering at a location to be determined (community
consultation will be undertaken in 2024, with construction in 2025);
•A replacement skate park located along the proposed Hydro Corridor park northof Kingston Road (construction anticipated for 2026, pending approval from
Hydro One – this facility would replace the aging skate park at Diana, Princess ofWales Park; and
•A skate spot located Dave Ryan Community Park in Seaton (constructionanticipated closer to 2029).
•Skate parks/spots are also being considered for the Seaton Recreation Complex& Library site and other appropriate park sites in Seaton as they are developed.
In order to address the demand levels forecasted by the 2017 Strategy, additional sites beyond those identified above will be required to fully implement the planned network,
particularly in South Pickering where these features are more likely to be integrated into
existing parks. Geographic gaps exist in Amberlea, Liverpool, Duffins Heights, and Bay Ridges neighbourhoods. Among the highest rated potential sites evaluated within the Skateboard Park Strategy were Amberlea Park, Bay Ridges Kinsmen Park, Centennial Park, David Farr Memorial Park, and Shadybrook Park, although there may be other
candidates. City Council did not support the recommendation for a skate park to be
developed in front of the main entrance of the Chestnut Hill Developments Recreation Complex, and the City is now pursuing opportunities within the Hydro Corridor to the north.
Because they can be used for a wide range of wheeled sports – scootering which is
now a dominant use in many locations, in addition to skateboarding, BMX biking, and
inline skating – the term “all wheels parks” in place of “skateboard parks” is becoming more common.
It is also noted that bike parks and pump tracks are beginning to be introduced by many area municipalities (e.g., Whitchurch-Stouffville, Uxbridge, etc.). These are specially
designed courses – often consisting of berms, rollers, ramps and/or similar features –
used by cyclists to enjoy off-road cycling and build skills. These parks provide safe spaces for bikers to develop their skills and connect with others within a purpose-built environment, deterring property damage from illegal biking in environmental areas. Many are co-located with skate parks to create an “all wheels” environment. While not a
high priority for Pickering at this time, a pump track may be considered through future
park renewal or development projects, ideally in proximity to growing residential neighbourhoods.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 83
Recommendations – Skateboard Parks
35.Reclassify skateboard parks as “all wheels parks” and integrate this term intothe City’s signage and promotions.
36.Expand the network of all wheels parks by:
a.replacing the aging community-level skate park at Diana, Princess of WalesPark at the proposed hydro corridor park to the north (pending approval fromHydro One);
b.developing up to 4 new local skate spots in South Pickering;
c. developing a community-level skate park in Seaton, possibly at the Seaton
Recreation Complex & Library; and
d.developing up to 3 new local skate spots in Seaton, including one DaveRyan Community Park.
Determination of locations and designs will require additional community consultation and site evaluation, guided by the criteria and classifications
established in the City’s Skateboard Park Strategy 2017.
37.Explore the potential for installing a pump track through a future community ordistrict park development project.
84 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
6.10 Playgrounds
The City provides playgrounds at 63 parks throughout Pickering. Most of the City’s playgrounds offer creative play structures and/or traditional play equipment; three sites provide swings only.
The provision of playgrounds relies on equitable geographic distribution to enable ease
of access within Pickering’s residential areas. The location of Pickering’s playgrounds has been assessed using an 800-metre radius; there are no significant gaps in playground provision based on this measure.
Many more playgrounds are planned for the Seaton community, including (but not
limited to) P-104, P-105, P-106, P-107, P-108, P-109, P-110, P-111, P-112, P-113, P-
121, P-124, P-125, P-126, P-127, P-131, P-132) and village greens in Duffins Heights (P-83 and P-87). Larger, destination playgrounds should be planned for prominent sites such as the Seaton Recreation Complex & Library, Dave Ryan Community Park (P-123), and Pickering Heritage & Community Centre (possibly at the adjacent Greenwood
Park). At the City’s discretion, additional playgrounds should be considered to enhance
geographic distribution and address equity, where appropriate.
As the City replaces older play structures, consideration is being given to components that are barrier-free for persons with disabilities. The City should be strategic in these replacements, ensuring that destination sites such as community parks offer highly
accessible playgrounds with rubber surfacing. Engineered wood fibre surfacing and
accessible components are suitable for most installations in neighbourhood parks. With over sixty playground sites and an average lifespan of around 20 years per structure, the City can be expected to average three (3) replacements each year. Future budgets for playground reconstruction should be reassessed to reflect recent inflationary factors.
38.Continue to install playgrounds within appropriate park types in growth areas. At
minimum, playgrounds should be located within 800 metres of residential areas(less in intensified areas), unobstructed by major pedestrian barriers such asvalleys, highways, and railways. Playground design should give consideration toplay value, variety in design, accessible features (focusing on community parksites), and supporting amenities such as pathways, seating, and shade.
6.11 Outdoor Fitness Equipment
Outdoor fitness stations feature low-impact, joint-friendly equipment that use resistance created by a person’s own body weight; the equipment is stationary with no moving
parts. Pickering currently offers basic outdoor fitness equipment at one location – St.
Mary Park. The equipment is free to use and located adjacent to the playground.
Recommendations – Playgrounds
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Pickering has a slightly lower level of provision of outdoor fitness stations compared to benchmarked municipalities. As these amenities become more common, per capita ratios can be expected to drop.
Outdoor fitness equipment offers the community affordable opportunities to stay fit and
should be considered for locations that offer an improved distribution within growing communities and destination parks. The preferred design involves clustering of components in relaxed park settings that are connected to a trail system and close to residential areas, with good access to parking and shade.
Outdoor equipment is planned for several sites in Seaton, including a fitness circuit
across P-124, P-126, and P-127. The City may consider distributing these locations more equitably throughout the new community area by applying a minimum catchment radius of 1-kilometre per site. Approximately five (5) locations can be anticipated in Seaton based on this measure. Opportunities should also be sought to establish
designated outdoor open space exercise zones that can be used for permitted group
fitness activities that are supported by the City’s parks by-law.
Recommendations – Outdoor Fitness Equipment
39.Integrate outdoor fitness equipment into appropriate parks, focusing ondestination parks (e.g., selected community and waterfront parks) and growingcommunities (using a 1-km radius to support equitable distribution).
40.Develop guidelines to support the design of designated open space exercisezones where the community can organize fitness classes (yoga, tai chi, etc.).
6.12 Community Gardens
The City has a large community garden site at the north end of Diana, Princess of
Wales Park with 107 rentable plots that is administered by the City of Pickering in
partnership with the Valley Plentiful Community Garden Committee. Additionally, the City runs a 55+ Plot to Plate program using 12 garden plots at the George Ashe Library & Community Centre site and has plans to extend this program to the Pickering Museum Village.
With a growing and more diverse population, it is anticipated that the demand for
community gardens in Pickering will rise. Smaller residential lots and more multi-storey buildings are also leading to fewer opportunities for backyard gardens, creating greater demand for community plots. These sites should be promoted as they bring residents together, offer improved food security and affordability, provide healthy food options,
and offer educational and stewardship opportunities. In 2022, the City developed a
Community Garden Policy to guide the establishment of new sites in partnership with community groups. Within the policy is a set of criteria that can be used to identify suitable locations for new community gardens.
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Building on the recommendations outlined in the 2017 Plan, the City has been monitoring the use and evaluating opportunities to expand the number of garden plots available at Diana, Princess of Wales Park. In 2024, the City aims to expand the
existing community garden east of Kingston Road in collaboration with the Valley
Plentiful Community Garden Committee, the Region of Durham, and Hydro One staff. This collaboration will enhance Valley Plentiful by increasing the number of raised garden plots and creating an accessible parking lot. Also, acting on a recommendation from the 2017 Plan, the City will be expanding their largest community garden site to the
north side of Kingston Road through the proposed Hydro Corridor Park (pending
approval from Hydro One). This site will help to address the current wait list and help to support longer-term needs as this area intensified, but additional locations should be considered to improve geographic equity.
As a newer amenity within the parks system, it can often be difficult to find appropriate
locations for community gardens, Ideally, these amenities are supported by access to
water, parking, fencing, shade, accessible features, and good visibility to improve safety and deter theft. It is understood that the City completed an assessment of potential locations, but that most existing parks are fully subscribed or not suitable for the placement of gardens. As the City builds new parks within new community areas, there
is an opportunity to design community gardens into selected locations.
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Given the need for support amenities, locating a community garden on the same site as the Seaton Recreation Complex & Library or other higher-order park site in Seaton in partnership with community groups is recommended. Under-utilized lands can be used
for gardens if they have the necessary infrastructure (e.g., water source, nearby
parking, etc.) and community support. Preferred locations will be those in proximity to higher-density forms of housing as these residents will have more limited opportunities for “backyard gardening”. Consideration should be given to providing opportunities for raised garden beds to accommodate all abilities.
The City does not need to be the only provider of community gardens. Different
municipalities use various approaches in administering a community garden program based on considerations around management, access, cost, site suitability, partnerships, etc. Many communities have had success working with agencies in the management and expansion of community garden programs, and the City is
encouraged to continue working with the development community and other property
owners to promote the establishment of gardens on private lands. Additional direction was provided through the City’s Urban Agriculture Action Project, which is currently underway.
Recommendations – Community Gardens
41.Support the establishment of community gardens on appropriate municipal
lands and as an option in new and redeveloped parks able to meet the site
criteria contained in the City’s Community Gardens Policy. Leveragepartnerships with agencies and private landowners to ensure an equitabledistribution across Pickering (including one or more sites in Seaton).
6.13 Off-Leash Dog Areas
Leash-free areas are fully fenced areas that provide pet owners with an opportunity to legally exercise and socialize their dogs off-leash in a controlled area. The City of Pickering offers off-leash dog areas at three locations: Baldson Park, Dunmoore Park, and Grand Valley Park (2 separate areas). Additionally, there is an off-leash area within
the portion of the Greenwood Conservation Area that is within the Town of Ajax.
Off-leash areas are increasingly being provided by urban municipalities as one approach to reduce conflict within shared park spaces, as well as to offer a social opportunity for responsible dog owners. Pickering’s current level of provision (one location per 34,300 residents) is slightly lower than the comparator group. For long-term
planning purposes, a target of one off-leash area per 30,000 residents is recommended,
with consideration given to geographic accessibility. Application of the provision target indicates a need for two new off-leash dog areas over the next ten years. An equitable distribution of off-leash dog areas offers convenient access to residents, which is important as many users visit off-leash parks multiple times a week throughout the year.
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Table 21: Projected Long-term Needs for Off-Leash Dog Areas
Target: 1 off-leash location per 30,000 pop. Now (2024) In Ten Years (to 2034)
Current Supply / Facility Needs 3 5
Potential Strategies n/a -new park development in mixeduse areas (City Centre) and newcommunities (Seaton)
Demand derived by applying provision target to anticipated growth (46,000 new residents by 2034), plus any current shortfall in supply
The City has plans to establish a new dog area in the proposed Hydro Corridor Park within the City Centre neighbourhood (pending approval from Hydro One), which will be ideally located to support future growth in this area. The City has done well to support off-leash sites within South Pickering – it can be difficult to identify appropriate sites
within a mature parks system due to concerns of conflicting uses, nuisance, and perceptions of safety.
Although the Grand Valley and Greenwood Conservation Area off-leash areas are centrally located for many, another location should be planned for the Seaton community. As Pickering grows, there may be opportunities to design off-leash areas
into parks from the onset, to the benefit of users and area residents alike. However, given the premium placed on parkland in new communities, sites for new off-leash areas should also be sought on under-utilized lands, including remnant park spaces, naturalized lands (excluding sensitive habitats), surplus municipal lands, hydro corridors (approval required), and other partnered or alternate spaces.
New sites should only be advanced in cases where location criteria can be met and in partnership with the volunteer working group that is responsible for general upkeep and safety of the sites. Some criteria that can be used to evaluate potential off-leash dog areas may include (but not be limited to):
•Ability to maintain public safety for users and non-users, including animals;
•Minimum size, appropriate configuration, and site characteristics;
•Land ownership and cost;
•Walkability and access;
•Compatible and non-compatible adjacent uses, such as buffering from highlypopulated residential areas, busy sports parks, and environmentally significant
areas;
•Consideration of fencing, on-site parking, water and shade;
•Community input and support from neighbours;
•Interest from a volunteer committee to act as park stewards; and/or
•Performance measures to monitor and evaluate facility conditions and operation.
The demand for off-leash areas is expected to continue into the future due to a recent
increase in pet ownership during the pandemic and greater residential densities that are
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reducing lot sizes, thereby increasing the reliance upon public space for exercising and toileting dogs. Leash-free areas serving missed use areas may require different approaches due to competing interests for parkland. High rise developers should be
encouraged to provide pet-friendly spaces to support their residents (the City of
Toronto’s recently published Pet Friendly Design Guidelines and Best Practices for New Multi-use Buildings may be a helpful reference in this regard).
Recommendations – Off-Leash Dog Areas
42.Provide two (2) additional leash-free dog areas within the next ten years inresponse to community need and only in cases where location criteria can be
met. Evaluate options for establishing an off-leash dog area in Seaton and
continue with plans to develop an off-leash park in the proposed Hydro Corridorpark (pending approval from Hydro One).
43.Prepare an off-leash dog area policy to address the dynamics of providing,designing, and maintaining leash free dog areas in higher density
neighbourhoods.
6.14 Outdoor Event Spaces
Community events contribute to Pickering’s vibrancy and livability and are important economic drivers. Pickering is well known for its community events and festivals, such
as Canada Day, Ribfest, Winter Nights City Lights, Cultural Fusion, Artfest, Dragon Boat
Festival, Food Truck Festival, Summer Concert Series, various heritage events at Pickering Museum Village, and more.
Many of these events occur within the parks system and are guided by the City’s Community Festival & Events Manual. Signature event parks in Pickering include:
•Alex Robertson Park (waterfront)
•Bruce Handscomb Park (waterfront)
•Esplanade Park (City Centre)
•Millennium Square (waterfront)
The City also hosts a seasonal outdoor farmers’ market at the Chestnut Hill Developments Recreation Complex.
Due to their location along the waterfront, many of the City’s signature event parks are
in mixed ownership, have limited parking, and do not have permanent infrastructure to support large gatherings on a regular basis. Despite this, these parks are well used and the City’s Community Festival & Events Manual is an effective tool for ensuring that events are well coordinated.
The City is witnessing greater demand for events, both large and small. Staff have
indicated a need for a large park site that is capable of accommodating crowds of 5,000 or more persons. Event parks require suitable adjacencies, including sufficient parking
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and access to transit, as well as electrical connections, water and wastewater disposal connections, public washrooms, shade, etc. Flexibility and increased functionality are critical – when not programmed with animations or community events, these spaces
could be adapted for use as casual congregation and community space.
There is a growing case to be made for the development of flexible and multi-purpose outdoor community gathering areas and purpose-built event spaces in Pickering. Such spaces could host short-term and one-off events, as well as longer-term, ongoing, and larger-scale community events and activities (including cultural festivals, open-air
markets, food festivals, and community gatherings).
Through the ongoing discussions with the TRCA about a future operating model for Petticoat Creek Conservation Park, there may be an opportunity for the City to designate this park as a signature large event site within Pickering, supported by proper amenities and features. Strategies and additional resources will be needed to activate
this and other event spaces for community benefit.
Further, infrastructure projects capable of supporting smaller scale or pop-up events in a variety of locations should be considered, such as Greenwood Park which is adjacent to the Pickering Museum Village and new Heritage & Community Centre. The animation of parks and public spaces helps to make these venues more accessible and enjoyable
for residents of all ages and provides an affordable outlet that connects the community.
Recommendations – Outdoor Event Spaces
44.Work with the TRCA to enhance Petticoat Creek Conservation Park as asignature park site for large events and festivals.
45.As a general principle, consider and evaluate event hosting capabilities whendeveloping and redeveloping community and district parks, including the
provision of support infrastructure (e.g., parking, electrical service, water and
wastewater services, washrooms, shade, etc.).
6.15 Beach and Waterfront Facilities
Pickering's waterfront is one of the city’s most prominent features and is host to a wide
range of recreational opportunities including a wide range of beach, water, and paddling
activities. The City works with other landowners such as Ontario Power Generation and TRCA to manage public access to waterfront lands, preserving the unique character of its waterfront.
The City has recently completed extensive renovations to Rotary Frenchman's Bay
West Park, including improvements to washrooms, trails and pathways, picnic areas,
shoreline restoration, and a new accessible canoe/kayak launch. The City is also moving forward with reconstruction of Beachfront Park following significant damage from high-water levels and intense storm events in 2017 and 2019.
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Through focus group workshops, continued access to Pickering’s waterfront was voiced as a concern. Open input on the engagement boards identified waterfront
revitalization as a top five priority for recreation and
parks. Recently, the City announced its interest in purchasing Frenchman’s Bay from private interests in order to restrict development, maintain public access and recreational use, and enhance environmental
stewardship.
The City of Pickering is fortunate to have access to scenic beaches and waterfront lands, which are utilized for swimming, leisure activities, dragon boating, kayaking, and more. Given the popularity of beach and
waterfront activities, similar municipalities are
increasingly providing updated and accessible amenities such as changerooms, washrooms, pavilions, play areas, and accessible features (the AODA has specific regulations that apply to newly constructed and
redeveloped beach access routes). Beach and
waterfront facilities may also be used to support permitted gatherings and programs (such as yoga groups using pavilions).
Outdoor water sports, such as stand-up paddleboarding
and kayaking, have surged in popularity over the past
few years. With people unable to travel during the pandemic, water sports provided an opportunity to get outdoors and experience their local water bodies. Water sports can be enjoyed for much of the year if the right
equipment and wetsuits are provided. Additionally,
inflatable equipment has become very popular which makes it easier to travel with and more accessible for the casual user to set up and use in their leisure time. Inflatable options also make paddleboards easier to
store compared to the conventional paddleboard. In
short, water sports have become easier for people to get involved in, with many opportunities to purchase or rent equipment, and even participate in lessons to improve their water skills.
Through the consultation program, residents expressed
how important these waterfront spaces are to them and the broader community as they not only bring people together, but play an important role in preserving greenspace and habitat. Waterfront parks received
extremely high levels of use during the pandemic and
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are an important part the City’s special events network. Continued investment in the development and maintenance of key waterfront sites (e.g., recreational amenities, trail connections, conservation initiatives, public art, support buildings, wayfinding, etc.)
should remain a top priority.
Recommendations – Beach and Waterfront Facilities
46.Continue to place a high priority on the preservation and restoration ofwaterfront parks and beaches that support public access for residents andvisitors.
6.16 Other Outdoor Facilities
The demands being placed on parks are rising every year. Beyond those facilities discussed above, there may be additional amenities provided within the parks system, such as (but not limited) to lawn bowling, bocce, disc golf, beach volleyball, kayak launches, running tracks, tobogganing hills, etc. Pickering has many of these facilities
within its parks system at present. These amenities and features can add variety and
value when supported by sufficient and sustained demand, effective management and maintenance, and successful partnerships.
Opportunities will be evaluated on a case-by-case basis with reference to the key principles and actions of this Ten Year Plan. Larger community and district park sites
may have the greatest capacity to accommodate new facilities, but any investment
should be supported by demonstrated needs. The framework for evaluating capital proposals from community organizations identified in Section 2.7 may also be applied to outdoor capital amenities.
Recommendations – Other Outdoor Facilities
47.Continue to monitor participation and trends in recreation and sport
activities accommodated through the parks system (including those delivered in
partnership with others) to inform future capital needs and strategies.
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7.Parkland
Access to outdoor space matters as parks are increasingly being seen as critical social, health, and environmental infrastructure. Green spaces offer places of respite and
improve air quality, provide venues for physical activity, and conserve natural and cultural heritage landscapes.
The City of Pickering wishes to position itself with a modernized policy framework to support its current and future system of parks. This section contains an assessment of current parkland service levels and future needs and provides recommendations to
assist the City in addressing its growth-related parkland needs and policy requirements.
While this plan will inform many aspects of the City’s future planning, the following items are excluded from the scope of this analysis:
•preparation of the Parkland Conveyance By-law;
•calculating or setting fees for cash-in-lieu of parkland dedication payments;
•financial or growth modelling, Official Plan policy development;
•technical parkland design or development standards;
•assessments of the natural heritage system or other lands not subject toparkland dedication under the Planning Act; and
•land acquisition strategies or the identification of specific parcels to acquire.
7.1 Planning Context
In November 2022, the Province of Ontario enacted the More Homes, Built Faster Act. This Act (also referred to as Bill 23) made significant adjustments to the parkland dedication requirements of the Planning Act, among amendments to several other regulations with this and other statutes.10
Bill 23 will result in considerably less parkland (and funding for land acquisition),
particularly within higher density areas. Municipalities may also have less discretion over the acceptability of lands through the development process, leading to smaller parkland parcels and less suitable lands for public spaces. The current planning regime and potential impacts are discussed in more detail later in this section.
New approaches to parkland dedication are needed to reflect current provincial policy
and to support complete communities. This Recreation & Parks Plan presents an opportunity to review and establish an appropriate provision level that will guide future acquisitions and leverage a wider variety of growth-related policy and financial tools.
This Ten Year Plan is intended to satisfy the provisions of the Planning Act – specifically the requirement for a Parks Plan identified in Section 42(4.1) – and to support the City’s
10 Note: As of writing, regulations are not currently in place for some of these legislative changes.
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next Official Plan review. The Ontario Planning Act now requires that a municipality prepare a parks plan prior to passing a parkland dedication by-law.
7.2 School Board Consultation
Schools can play an important role in bolstering public access to parkland. School
boards operating in urbanized communities share similar land-acquisition challenges as
their municipal counterparts which is leading to greater collaboration and coordination among these parties across Ontario. Strategic coordination with local school boards in Durham Region is particularly important as schools are often encouraged to be co-located with neighbourhood parks. As future population growth continues, opportunities
to continue working together will be paramount. At a minimum, consideration should be
given to:
• Understanding if/when surplus schools are identified where the City may benefit from purchasing them to meet outdoor parks and/or open space needs.
• Joint land use planning activities, particularly when there is an opportunity to situate parkland adjacent to a school block with the intent of maximizing the amount of publicly accessible greenspace.
Section 42 (4.2.a) of the Planning Act identifies that in preparing a parks plan,
municipalities shall consult with school boards within the jurisdiction.
School board representatives were engaged to understand any new schools or surplus school sites, how municipal parkland is currently used, capital priorities, and opportunities for partnerships and collaboration. Both the Durham District School Board and Durham Catholic District School Board participated in meetings in February 2024.
The MonAvenir Conseil Scolaire Catholique and Conseil Scolaire Viamonde were
invited but did not participate.
New and Surplus Schools
• The Durham District School Board (DDSB) has a total of nine sites in the Seaton
community, with the first elementary school under development and scheduled to
open in September 2025. The Board is working with the City to secure a location for the second school on a former public works site. As growth has slowed in Seaton, the board is able to accommodate most new students in nearby schools at this time.
• The Durham Catholic District School Board (DCDSB) has identified five sites in Seaton and are in the process of developing their first elementary school (adjacent to the Rick Johnson Memorial Park), to accommodate a capacity of 620 students and include an EarlyON hub.
• While most current student growth is occurring in the Seaton area, the boards are noticing increases in student enrollment in established areas as well. A future site for a new public elementary school has been identified on the City Centre
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Neighbourhood Map 18 in the Pickering Official Plan to serve growth in this intensifying community.
• Neither the DDSB nor the DCDSB have any surplus lands in Pickering and do
not have any planned closures.
• The boards expressed concern about the shrinking sizes and poor quality of new school sites, which creates challenges in offering sufficient outdoor green space
for students. It is understood that the Province is working on guidelines for urban school models (e.g., podiums), which may become more prevalent in the future.
Joint Use
• Both boards have several schools adjacent to a municipal park or green space
with agreements to support reciprocal use. The boards are keen to work with the
City to ensure that school blocks continue to be planned adjacent to park sites.
• Both school boards have joint use agreements with the City that enable them to use key City recreation facilities and parks and, in turn, facilitate public access to
school facilities such as gymnasiums and sports fields. The City programs
several gymnasiums (typically larger high school gyms; e.g., Dubarton, Pine Ridge, St. Mary’s, etc.) for use throughout the year. Both school boards spoke positively about these arrangements.
• The boards also directly administer a community use of schools program that allows community organizations to rent spaces. Gymnasiums and lit fields are in the highest demand, especially Monday to Friday evenings (excluding summer). The boards have seen considerable growth in demand for rental activities such as badminton, cricket (softball), volleyball, and pickleball.
Working Together
• In terms of facility partnerships, the DCDSB mentioned that they are open to discussions for developing artificial turf fields on their school sites. For the DDSB, a City indoor pool is co-located with Dunbarton High School; the board indicated
that, while there are no major capital improvements planned for the high school,
they anticipated it to remain in their inventory for years to come.
• Both school boards expressed a desire to collaborate with the City on park projects and future shared sites. DCDSB’s Father Fenelon elementary school
was discussed as an example of how it may be more optimal to maintain green
space rather than designating outdoor facilities (e.g., soccer fields), to allow for wider range of activities and uses. DCDSB also indicated that they are working toward creating more naturalized safety zone areas in playgrounds, outdoor classrooms, and social spaces.
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7.3 Parkland Provision
Public parks are important places for building a sense of community, social belonging, and retaining and attracting residents and visitors. This section highlights the City’s parkland hierarchy and summarizes the parkland inventory based on park type. To
ensure that the City keeps pace with land-based demands, this section also examines
Pickering’s future parkland requirements.
Defining Parkland
Section 3.5 of Pickering’s Official Plan provides the basis for the “Open Space System”. This system includes a variety of key natural heritage and key hydrologic features,
much of which is not in public ownership. The Open Space System also includes major
parks, recreational, and conservation areas that are the focus on this Ten Year Plan.
For the purposes of this plan, the following definitions and examples are used:
“Parkland” refers to all lands owned, leased, and/or managed by the City and includes those lands that are classified in the City of Pickering Official Plan as
“Active Recreational Areas”. Parkland typically consists of tableland suitable for
the development or installation of built recreational or civic amenities (such as sports fields, playgrounds, courts, gardens, etc.) that may be used for both organized and unorganized activities, although these parks may also incorporate natural features11. In the context of this plan, the terms “park” and “parkland” are
used interchangeably.
“Open Space” refers to all lands owned, leased and/or managed by the City that are classified in the City of Pickering Official Plan as “Natural Areas”. These sites generally have no to low development potential and are primarily designated for purposes such as environmental conservation, stormwater management, buffers,
etc. While it is important to recognize the benefits of open space lands, they are
excluded from policies relating to parkland as they typically have limited opportunities for active recreation and have not traditionally been accepted as parkland through the development process.
The focus of the analysis in this Ten Year Plan is on “parkland” as these are the lands that accommodate the majority of active recreation amenities and are typically acquired through the land development process (through dedication or
cash-in-lieu).
Parkland and open space may be provided by a variety of agencies and take different forms. All parks owned by the City of Pickering are available for public use and the City
has supplemented this supply by entering into maintenance agreements for lands
11 Note: Bill 23 introduced changes to the Planning Act that will allow applicants the opportunity to identify the land they intend to convey to the municipality for parkland, including encumbered land. Clarification of these conditions will be provided by way of regulations (not yet released).
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owned by public agencies, such as Hydro One and Ontario Power Generation. The degree of public access and functions of these and other parklands will vary and can be different from what the City delivers through the sites that it owns. Regardless of
ownership, all sites work together as key parts of the parkland and open space system
by promoting physical and mental wellbeing and preserving ecological benefits.
Table 22: Parkland and Open Space Providers in the City of Pickering
Provider Comments
City of Pickering City of Pickering parks vary in their size, design/configuration, and intended function(s). Some parks are co-located with community facilities and provide parking onsite, while others may simply have a playground, open play space, and/or seating, or may even be undeveloped.
School Boards School grounds may include play structures, sports fields, and hard surface courts. The City has a joint-use agreements to enable public
access to several school sites outside of school hours. School facilities are often designed and maintained to different standards than those of municipal parks and may not always be conducive to the needs of all residents or user groups. Consultations with local school boards were carried out as part of this plan.
Conservation Authorities The Toronto and Region Conservation Authority (TRCA) owns and manages several notable properties in Pickering focused largely on
conservation and protection of ecological systems. These lands provide a range of activities such as hiking and picnicking. Public access may be restricted or require an admission fee. Notable TRCA-managed properties include: Petticoat Creek Conservation Park (70 hectares, located along the Lake Ontario shoreline), Greenwood Conservation Area (675 hectares, located in both Pickering and Ajax, separated by Fifth Concession Road), Claremont Nature Centre (160 hectares, located along Duffins Creek), and Altona Forest (53 hectares).
The City also maintains (under agreement) some TRCA-owned lands as municipal parks, such as Rotary Frenchman's Bay West Park, Bruce Handscomb Park, and Glen Ravine Park.
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Provider Comments
Other Government Agencies Ontario Power Generation (OPG), which operates the Pickering
Nuclear Generating Station, owns and maintains lands predominantly on Pickering’s waterfront. Alex Robertson Park, Bayridges Kinsmen Park, and Beachfront Park are operated by the City of Pickering under
agreement with OPG.
Hydro One is responsible for the hydro transmission corridors, several of which are operated under agreement by the City of Pickering as
district and community parks (Diana, Princess of Wales Park and Beverley Morgan Park).
Additionally, Transport Canada owns the land upon which Don Beer Memorial Park is located, an arrangement that came about through the realignment of Highway 7.
Operated by Parks Canada, Rouge National Urban Park –one of the largest parks in an urban area in North America – is located along the entire westerly boundary of Pickering. Parts of the park are situated in
rural northwest Pickering and in 2018 the City transferred additional lands to Parks Canada to help complete the park. This park is a unique combination of woodlands, valleys, meadows, and farmlands. Parks Canada is planning to expand the park’s trail network and link up with trails in Pickering and adjacent municipalities.
Private Owners Parks held in private ownership are not typically considered part of the parkland inventory. Privately owned parks and any associated analyses of these lands generally fall outside of the scope of work for this plan. Although there are some privately owned lands within the open space designation, this is not to imply that these lands are publicly accessible or that the City or any other public agency is obligated to purchase the lands.
Park Hierarchy and Classification System
The parkland hierarchy is a core element of park planning, design, and development. The hierarchy system defines the range of characteristics found in municipal parks, such as their size, form, function, and/or level of amenity. Such definition encourages a
broad range of park types and facility combinations that enables a consistent management approach that can be tailored to respond to community needs. The identification of common elements also helps to ensure compatibility with neighbouring land uses, while providing the community, developers, and planners with an understanding of what new or redeveloped parks may include.
The City of Pickering Official Plan identifies the following parks hierarchy for the Seaton Urban Area (Section 11.13). While the classification system was developed for the Seaton community, it is understood that it is being applied in practice to parks in all areas of the City.
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The current classification system12 consists of:
•District Park (also referred to as City-wide Parks)
•Community Parks
•Neighbourhoods Parks
•Village Greens (also referred to as Parkettes)
•Urban Squares
Each of the above-noted park types are described in Appendix G, in accordance with the City’s Official Plan policies for the Seaton Urban Area.
Pickering has historically grown through traditional suburban development forms and –
while it will continue to do so – there is also a significant shift toward higher density developments and infill projects in the City Centre area and along key corridors. This intensification is creating pressures on existing and proposed parkland as land is more expensive and availability is highly restricted. New, innovative, and collaborative
approaches are needed. A more nuanced parkland dedication regime that goes beyond
the traditional park types identified above is required to reflect this urban context and to ensure that the growing city is well-served by its public parkland system.
The proposed framework distinguishes the parkland hierarchy between Mixed Use Areas and Urban/Rural Residential Areas. Further, two new parkland classes are
introduced to the Mixed Use Area hierarchy: Urban Parks and Linear Parks. The new park types will be required as the City’s parks system evolves to include new forms that respond to the changing urban structure. Guidelines for these new park types are shown in the following tables, along with the existing framework.
It is also recommended that the City consider renaming its District Park designation to
“City-wide Parks” to better reflect the level of service within this park type and, further, to amend related guidelines to allow for the dedication and/or reclassification of large blocks of land (greater than 20 hectares) that also support environmental education, interpretation, and nature-related recreation, thus serving a broader audience. This change is intended to allow for the inclusion of larger properties (ideally combined with
parklands that support active recreation) that support linear and passive recreation, including events and amenities that would attract users from across the city.
12 Although the City’s Official Plan identifies “Trailheads” within the parkland classification system for the Seaton Urban Area, in practice this is a feature and not a park type.
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Table 23: Proposed Parkland Classification System
Urban Residential Areas & Rural Settlements Mixed Use Areas
Areas Covered South Pickering, Seaton Urban Area, Northeast Pickering, Claremont, Brougham, etc. City Centre, Nodes and Corridors
Park Types District Park (City-wide Parks)
Community Parks
Neighbourhoods Parks
Village Greens (Parkettes)
Urban Park – proposed
Urban Squares (Parkettes)
Linear Park – proposed
Table 24: City of Pickering Parks Hierarchy, Proposed Additions
Park Type Proposed Guidelines
Urban Park (proposed)
Urban Parks are publicly-owned lands that are located in highly visible and accessible locations, typically in higher density residential and/or mixed use areas. They include a balance of active and passive uses and are intended to serve both the local community and city-wide needs.
More specifically, Urban Parks are:
•May be characterized by hardscaped areas for events andgatherings, fountains/waterplay, public art, seating areas, lighting,related civic uses, etc. They should also include soft surfaceelements for outdoor play, rest and shade, and outdoor urban life.
•As significant gathering places that provide a strong sense of place,they are designed to a very high standard to support more intensifieduse and to promote universal/barrier-free access and user safety.
•Generally 1ha or larger.
•Situated to meet the needs of the local community (generally within a10-minute walking distance; approximately 800 metres) and in some
instances may accommodate City-wide facilities.
•Designed with frontage on at least one public street, but may be
surrounded by public streets where the scale of the park isappropriate. The adjacent built form should have active frontagesfacing the park, where appropriate.
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Park Type Proposed Guidelines
Linear Park (proposed)
Linear Parks are substantial corridor spaces that contribute to
placemaking, connectivity, safety, and enhanced streetscapes within higher density mixed use areas. They may be destinations unto themselves with outdoor seating, restaurant and retail frontages, and
public art.
More specifically, Linear Parks are:
• Typically located between adjacent building facades and the adjacent road right-of-way (but not within the right-of-way), running continuous along the length of the block. They may also be located along or near
boulevards, rail lines, watercourses, or other public open space corridors.
• Designed to accommodate an active pedestrian experience along with street-related activities such as vendor and exhibit space.
• Designed to enable pedestrians to safely travel through the urban community quickly and easily through the provision of facilities such as pedestrian links with adequate lighting, seating/tables, recycling
and waste receptacles, bike racks, and accessibility supports.
• Will generally have a minimum width of 15 metres.
• Typically publicly-owned spaces, but may be privately owned and publicly accessible in keeping with City policies.
Recommendations – Park Hierarchy and Classification System
48. Modify and update the City’s parkland hierarchy through the next Official Plan
update. This includes distinguishing between different types of parkland in Mixed
Use Areas and Urban/Rural Residential Areas and updating the policies for existing designations as appropriate. Additionally, it is recommended that two new park categories (Urban Parks and Linear Parks) be created to support the emerging Mixed Use Area hierarchy. Consideration may also be given to
renaming the District Park (to “City-wide Park”) and expanding the designation to
allow for the inclusion of larger properties that support linear and passive recreation, such as city-wide events, environmental education, interpretation, and nature-related recreation.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 103
City-wide Park Supplies
The City of Pickering manages 180.9 hectares of parkland distributed across 70 sites, exclusive of open space lands13. Nearly half of this supply is owned by other public
agencies, but available for public access (through management agreements with the
City). This level of provision translates into a ratio of 1.76 hectares per 1,000 residents.
Public parkland and open space amounts owned and/or leased by the City of Pickering are identified in the following table. A full listing of existing and proposed parks is contained in Appendix D. Note: the City’s parkland database is maintained by the
Operations Department, which uses a slightly different classification system than what is
contained in the Official Plan; where possible, parkland categories have been blended to improve alignment.
Table 25: Current Supply of Municipal Parkland, City of Pickering
Park Type Number of Parks Lands Owned by City* (ha) Lands Owned by Others (ha) Total Land (ha)
Community Parks 21 54.8 76.3 131.1
Neighbourhood Parks 22 39.9 0.6 40.5
Parkettes (Village Green, Urban Square) 27 8.7 0.6 9.3
Total Parkland 70 103.4 77.5 180.9
* Note: some lands are in mixed ownershipOther landowners include: Ontario Power Generation, Toronto Region Conservation Authority, HydroOne, Frenchman’s Bay Ratepayers, Transport Canada, and/or Regional Municipality of Durham.
Due to changes in how the City categorizes its parks and open space, it is not possible to accurately compare changes in the supply from past planning cycles, although it is likely that the City’s parkland service ratio has decreased in recent years due to the declining sizes of parkland dedicated through development. It is recommended that a system be put into place to create a centralized database that will allow for tracking over
time.
Looking ahead, additional parkland will be dedicated to the City in the future as new development applications are approved, as well as through negotiated approvals for secondary plan areas.
The supply of parkland in the City’s new community areas (e.g., Seaton, Northeast
Pickering) will likely be less on a per capita basis than in South Pickering because of declining parkland dedication amounts through the Planning Act. While these new parks will be able to accommodate active and structured recreational amenities, smaller parks mean that there may be less space for unstructured or passive use, buffers and
13 Note: Significant open space portions of existing parks have been removed from the calculations to provide a more accurate depiction of the lands available for park purposes.
104 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
setbacks, parking, etc. It also means that the City will need to design parks to accommodate greater capacity than traditional parks, with considerations of robust materials and designs that allow for greater use (e.g., artificial turf fields, multi-use
courts, etc.). The community must also continue to rely on lands provided by other
public agencies (e.g., schools, Hydro One, OPG, TRCA, etc.) to serve residents over the planning period.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 105
Table 26: Future Parkland Potential Across the City of Pickering
Community Comments
Seaton Urban Area Seaton has been planned as a sustainable urban community with a focus on walkable neighbourhoods and equitably distributed parks and recreational facilities. The majority of future parkland in Seaton has already been negotiated by way of the Neighbourhood Plans.
There is approximately 95 hectares of parkland anticipated within Seaton according to the City’s database; this includes a 36.4 hectare district park within the Innovation Corridor. Nearly all of this parkland has yet to be dedicated to the City, but will be transferred as the area is
developed. This translates into an average rate of provision of 1.36 ha/1000 residents.
Mixed Use Areas Considerable growth is anticipated for the City’s mixed use areas such as the City Centre and Kingston Road Corridor. Parkland dedication is required through development and redevelopment applications, as guided by the City’s Official Plan. Larger sites may yield land for urban parks, which may not be viable on smaller development sites. As
discussed later in this section, privately-owned public spaces and strata parks are becoming more common in intensification areas, with one currently being planned in Pickering’s Universal City development.
Established Areas Mature, established parts of Pickering are unlikely to yield much in the way of additional parkland. There may be low potential through infill development (which would yield small park blocks or cash-in-lieu) or through the strategic acquisition of lands for park purposes by Council (such as the recent acquisition of waterfront properties).
Northeast Pickering A secondary plan process is just getting underway for this new
community area and a land use structure (and parkland amounts) has yet to be developed. A series of community parks, neighbourhood parks, village greens, a connected trail system may be anticipated.
106 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Community Comments
Other The City has a history of working with other public agencies (e.g.,
schools, Hydro One, OPG, TRCA, etc.) to supplement municipal parkland supplies. These arrangements should continue to be pursued to serve residents over the planning period.
Notable non-municipal properties that may assist the City in meeting its long-term parkland and recreation goals include (but may not be limited to):
•Petticoat Creek Conservation Park: These lands are owned andmanaged by TRCA; they are located in South Pickering along the
Lake Ontario waterfront. The City has been studying the potential tointroduce new activities and programming to turn this into adestination park for all residents. An agreement and detailed design
plan is required to more fully define future park uses and costs.
•Greenwood Conservation Area: These lands are a former City of
Toronto Landfill that are now owned and managed by TRCA. Theyare located in Central Pickering along the border with the Town ofAjax. There is a longer-term opportunity to develop a municipalsports field complex on approximately 20 hectares throughagreement with TRCA.
•Future District Park north of Green River: A currentlyundeveloped and unserviced 36-hectare property has been securedfor a future District Park north of Highway 7 near Green Riveraccess off Sideline 32. This is a long-term project.
•Durham Meadoway: This is a proposed pedestrian and cyclingroute and linear park that will connect people to destinations acrossmore than 27 kilometres of Durham Region. In addition to providinga significant east-west recreational facility and active transportationspine, the Durham Meadoway also has the potential to become amulti-faceted space for people that includes ecologicalenhancements, public art and community amenities. This space iscurrently in the design phase, being led by the Region of Durham.
Recommendations – City-wide Park Supplies
49.Develop and maintain a comprehensive inventory database of parks and openspaces (linked to GIS and asset management databases) for the purposes ofevaluation and planning.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 107
Parkland Needs
An appropriate supply and equitable distribution of parkland is critical to ensuring a high quality of life and maximizing accessibility to services and amenities that achieve
community objectives. As the City grows, there will also be a growing need for more
parkland to serve the increasing number of residents.
Most municipalities use population-based targets to calculate and plan parkland supply. As it is becoming more complex and costly to secure quality parcels for parkland within new higher density forms of development, a parkland target can be a useful tool that
informs the City’s parkland acquisition program.
Parkland to population ratios are in common use throughout Ontario and beyond. The City’s current parkland provision rate is 1.76 hectares per 1,000 residents, excluding open space (e.g., natural areas); nearly half of this is not owned by the City of Pickering, but managed under agreement.
As shown in the following figure, municipalities in the Greater Toronto Area with
comparable characteristics to Pickering typically strive to achieve parkland provision rates around 2.0 hectares per 1,000 residents, with larger, more urbanized communities tending to have lower targets. It is notable that many of these targets have been set prior to recent changes to provincial legislation that place additional limits on parkland
dedication amounts. Even prior to these changes, parkland service levels have been
declining over time in most jurisdictions.
Figure 8: Parkland Provision Targets in Selected Ontario Municipalities (hectares per 1,000)
Source: Various Official Plans, Parks and Recreation Plans; compiled by Monteith Brown Planning Consultants
3.0
2.2
1.2
1.6
2.0 2.0 2.0
1.4 1.2
1.8 2.0 2.0
3.7
2.5 2.3
1.7 1.8
2.7
1.9
1.6 1.3 1.7 1.6 1.7
Parkland Target Actual Parkland Provision
City of Pickering Actual Parkland Provision = 1.76 ha/1000
108 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Understanding current parkland dedication tools and prospective ratios is important in establishing a target that is both realistic and achievable. Through the Bill 23 provisions now within the Planning Act, application of the standard and/or alternative rate will
generally result in parkland dedication ratios of between 0.2 to 1.0 hectares per 1,000 residents, well below current levels of supply in Pickering. The actual ratio will vary depending on the density of the development and the number of persons per unit. The following graph and tables in Appendix H provide several illustrations.
Figure 9: Parkland Dedication Scenarios (Bill 23)
Note: Parkland dedication is capped at 10% of the land or value of the land for development or redevelopment sites that are five hectares or less and at 15% of the land or value of the land for sites that are greater than five hectares.
The current provincial policy regime and land economics mean that per capita parkland
provision rates will continue to decline. Applying the City’s current parkland provision level to future growth is not attainable or realistic as all new residential development that occurs within Pickering will reduce the City’s overall ratios. It is common for current provision rates to be higher than established standards as this reflects historical land acquisition practices and the declining service levels anticipated for the future. Moving
forward, needs are more likely to be focused on neighbourhood and community parks in new communities and growth areas.
It is recommended that the City establish a municipal-wide provision target for parkland that is both attainable and that helps Pickering achieve its vision for a parks system that responds to resident needs. This means setting a target that will promote equitable
distribution, expand in step with the community (and its many new young families), encourage quality sites that support a range of park types, and that is financially achievable. A target should be seen as a benchmark to guide long-term goals and against which to measure progress.
0.33
0.23 0.17 0.11
0.98
0.52 0.45
0.33
0.22
0.56
0.68
0.5
0.33
0.00
0.20
0.40
0.60
0.80
1.00
1.20
15 30 50 100 150 250He
c
t
a
r
e
s
p
e
r
1
0
0
0
p
e
r
s
o
n
s
Density (units per hectare)
Standard Rate Alternative Rate (5ha site)Alternative rate (10ha)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 109
On the basis of this analysis, it is recommended that the City set a target of achieving – at minimum – a parkland provision level of 1.5 hectares per 1,000 residents by 2034 (City owned and leased parkland). This target should not be
interpreted to be rigid and should be reviewed again in ten-years’ time.
As time goes on, the City-wide target may be greater than what can be achieved solely through the provisions of the Planning Act and will potentially require other means of securing parkland, such as acquisitions, lease agreements, etc. It is also important to recognize that this target is supplemented by other public lands that are not defined as
parkland, but that can provide valuable contributions to community life, such as open
spaces, schools, conservation areas, etc.
Further, it is recommended that this target be modified to address the specific needs and policy approaches within Pickering’s various urban, suburban, and rural contexts. With increasing intensification, more municipalities have been adopting different
parkland targets for different urban contexts and trying to avoid over-reliance on a single
measure. For Pickering, these recommended sub-targets (expressed as “minimums”) are as follows:
1)Mixed Use Areas: A minimum target of 0.5 hectares per 1,000 residents or 12%of total gross land area (whichever is greater) is recommended for mixed use
areas such as the City Centre and growth nodes and corridors. This standard is
50% of the target for new communities and reflects the complex land economics ofdeveloping in intensification areas where parkland opportunities will be severelylimited.
2)New Communities: A minimum target of 1.2 hectares per 1,000 residents is
recommended for suburban areas such as the Seaton Urban Area and Northeast
Pickering. As new community areas are much larger in context and can be plannedas a complete community, there is a greater likelihood of achieving this target. Thedevelopment community should be encouraged to participate in achieving orexceeding this target as neighbourhood and community parks offer value to
prospective buyers and are vital in designing complete communities.
3)Established Areas: A minimum target of 1.5 hectares per 1,000 residents isrecommended for mature residential areas in South Pickering and ruralsettlements. This largely reflects the current level of provision in these areas, whichwill see slower growth partially through infill developments over the next ten years.
Application of the City-wide provision target calculates a need for 69.1 additional
hectares of parkland by 2034 (to address population growth of approximately 46,079 residents). The following table illustrates minimum future parkland amounts required to achieve the recommended targets.
City databases identify 61.6 hectares of parkland that are anticipated to be dedicated
over time within the Seaton Urban Area (54.0 ha, much of which will be beyond 2034;
excluding the planned District Park in the Innovation Corridor) and approved plans of subdivision in other areas of Pickering (7.6 ha). Discounting for these known conveyances, it is estimated that 7.4 to 18.0 additional hectares of parkland (over
110 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
and above planned dedications) will need to be secured to meet the city-wide target. Of this, 11.8 hectares will be specifically intended to serve established areas and 6.3 hectares to serve mixed use areas (City Centre, Kingston Road Corridor, etc.).
At this time, no additional parkland needs have been identified within the Seaton Urban
Area beyond those that are currently planned.
Table 27: Approximate Parkland Dedication / Acquisition Targets to 2034
Community Types
Parkland Provision Target (minimum)
Population Growth (2024-2034)
Estimated Parkland Requirements (2024-2034)
Known Parkland Dedication Parkland Deficit
Mixed Use Areas (City Centre, Kingston Rd., etc.) 0.5 ha/1000 13,829 6.9 ha 0.6 ha 6.3 ha
New Communities (Seaton) 1.2 ha/1000 19,732 23.7 ha 54.0 ha* n/a
Established Areas (other
urban and rural neighbourhoods)
1.5 ha/1000 12,518 18.8 ha 7.0 ha 11.8 ha
City-wide 1.5 ha/1000 46,079 69.1 ha 61.6 ha* 7.6 ha to 18.0 ha
Note: Parkland supplies and targets include City-owned parklands and non-owned parkland that is managed under agreement. * a large portion of these lands will be conveyed post-2034; excluded from this figure is the planned
District Park in the Innovation Corridor (36.4 ha)
Achieving these targets will require a variety of approaches, including direct acquisition,
off-site conveyance, agreements with other landowners for public access (e.g., Petticoat Creek Conservation Park, Greenwood Conservation Area, etc.), etc. Beyond 2034, the City is planning a future District Park (36.4 ha) within the Innovation Corridor that will also offer significant opportunity to expand the supply of public parkland in the longer-
term. Approaches to land acquisition are discussed further later in this section.
Recommendations – Parkland Needs
50.Adopt a minimum City-wide parkland provision target of 1.5 hectares per1,000 residents through to 2034. This target (as well as defined targets for mixeduse areas, new community areas, and established areas) should be used toinform the review of development applications and secondary plans for the next
ten years. Where possible, parkland provision targets should be linked to
population and/or housing units.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 111
Park Distribution and Priority Acquisition Areas
Equity is a foundational principle in assessing the adequacy of parkland provision. This can be measured by considering both access (e.g., gaps in geographic distribution) and
supply (e.g., areas with parkland shortfalls).
The City of Pickering Official Plan contains the following policy relating to a connected system of parks, trails, and greenspaces (Section 7.7):
“Recognizing the importance that parks and green space have in providing healthy settings and opportunity for healthy lifestyles for residents, employees
and visitors, City Council shall promote the establishment of an accessible,
publicly-owned, connected system of parks, trails and greenspaces, providing
within that system activities for people of different ages and different abilities.”
A distributional analysis was undertaken by applying this service area to Pickering’s parks to understand where residents are located within walking distance to a park or
where gaps exist. The City’s Official Plan identifies a measure of 400 to 800 metres to
ensure accessibility to neighbourhood parks (5 to 10-minute walk). The following map illustrates the current distribution of parks (all parkland types) based on a 400-metre radius, adjusted for highways and creeks. By using the lower end of this range, there is a greater likelihood that those with limited mobility would have access to the many
benefits that parks provide.
As shown on the following map, Pickering’s parks are equitably distributed across the city. Any visible gaps in park distribution are a result of natural areas (e.g., ravines, woodlots, etc.), golf courses, schools, commercial, or industrial areas. While park coverage is excellent overall, intensification will amplify the need for equitable
distribution and the constrained availability of land could challenge the City’s ability to address localized gaps in the future. For example, there is a minor gap within southern parts of the Woodlands, Dunbarton, and Liverpool areas (generally along the north side of Kingston Road between Whites Road and Pickering City Centre). With residential intensification planned along this corridor, it will be important to secure appropriate
land for parks in this area to serve existing and future residents.
112 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Figure 10: Current and Future Parkland Distribution, City of Pickering (400-metre radii)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 113
The City’s current (2024) and forecasted (2034) population was also assessed in relation to the parkland inventory using the City of Pickering’s neighborhood areas. This parkland to population ratio analysis provides another approach to determining areas of
under-supply and identifying priority areas for future parkland acquisition.
Specifically, this approach allows for:
•a geospatial analysis of current and known future parkland supplies (all parklandtypes) across the City’s various neighbourhoods using a 400-metre radius;
•identification of areas currently with low and high parkland supplies incomparison to the planning targets for their particular urban structure (e.g., mixeduse areas, new communities, and established areas) and an illustration of howthis may change over time (note: industrial areas are excluded from the
analysis);
•identification of areas of growth that will experience added pressure and demandfor parkland;
•recognition of the differences in parkland supply, parkland needs, and population
within different urban contexts, such as rural, suburban urban and establishedcommunities; and
•a basis for considering different park provision targets or approaches across
different urban contexts.
The following tables and maps identify per capita parkland supplies by neighbourhood, both now (2024) and in the future (2034+). More than 50% of the City’s residential and rural neighbourhoods (11) currently have parkland provision ratios that are below the recommended targets. Some of this can be attributed to the pace of development in
Seaton, where ratios are likely to improve as new parks come online in the future. Notably, parkland ratios are currently forecasted to decline substantially in the City Centre unless sufficient new parklands are secured through planned growth.
114 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Figure 11: Parkland Provision by Neighbourhood, Existing (2024)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 115
Figure 12: Parkland Provision by Neighbourhood, Planned (2034+)
116 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Table 28: Parkland Provision within Mixed Use Areas, Existing and Planned (Target = 0.5 ha/1000)
Neighbourhood 2024 Population 2034 Population
Population Change 2024-2034
Current Parkland (ha)
2024 Parkland Per 1,000
Future Parkland (ha)
2034 Parkland Per 1,000
8-City Centre 6,260 20,090 13,829 8.6 1.37 9.2 0.46
Mixed Use Area Total 6,260 20,090 13,829 8.6 1.37 9.2 0.46
Legend: Red = Below the parkland provision target for this type of community (priority acquisition area); Yellow = 0% to 100% above the target; Purple = more than 100% above the target
Table 29: Parkland Provision by New Communities, Existing and Planned (Target = 1.2 ha/1000)
Neighbourhoods
2024 Population 2034 Population
Population Change 2024-2034
Current Parkland (ha)
2024 Parkland Per 1,000
Future Parkland (ha)**
2034 Parkland Per 1,000
16-Lamoreaux 4,205 11,752 7,547 2.2 0.52 6.8 0.58
17-Brock - Taunton 38 37 -1 0 0.00 0.5 13.58
18-Mount Pleasant 46 2,219 2,172 0 0.00 18.3 8.25
19-Wilson Meadows 1,595 7,142 5,547 0.2 0.13 22.4 3.14
20-Thompson's Corners 38 4,504 4,467 0 0.00 8.4 1.86
21-Innovation Corridor*32 32 0 0 0.00 0.0 0.00
New Communities Total 5,953 25,685 19,732 2.4 0.40 56.4 2.20
* industrial area, excluded from calculations
** a large portion of these lands will be conveyed post-2034; excluded from this figure is the plannedDistrict Park in the Innovation Corridor (36.4 ha)
Legend: Red = Below the parkland provision target for this type of community (priority acquisition area);Yellow = 0% to 100% above the target; Purple = more than 100% above the target
Table 30: Parkland Provision within Established Areas, Existing and Planned (Target = 1.5 ha/1000)
Neighbourhoods
2024
Population
2034
Population
Population Change 2024-2034
Current Parkland (ha)
2024 Parkland Per 1,000
Future Parkland (ha)
2034 Parkland Per 1,000
1-Rosebank 3,234 3,367 133 2.4 0.74 2.4 0.71
2-West Shore 6,893 6,830 -63 33.3 4.83 33.3 4.88
3-Bay Ridges 11,095 10,899 -196 45.1 4.07 45.1 4.14
4-Brock Industrial*12 12 0 0 0.00 0.0 0.00
5-Rougemount 3,087 4,933 1,846 0.7 0.23 0.7 0.14
6-Woodlands 3,370 4,410 1,040 2.6 0.77 2.6 0.59
7-Dunbarton 2,699 2,908 209 0.6 0.22 0.6 0.21
9-Village East 5,641 6,844 1,202 10.2 1.81 10.2 1.49
10-Highbush 6,156 6,164 9 2.7 0.44 2.7 0.44
11-Amberlea 12,965 12,740 -225 15.4 1.19 15.4 1.21
12-Liverpool 17,415 17,163 -252 28.6 1.64 28.6 1.67
13-Brock Ridge 6,702 8,007 1,305 14.8 2.21 14.8 1.85
14-Rouge Park 1,494 2,324 830 0.1 0.07 0.1 0.04
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 117
Neighbourhoods 2024 Population 2034 Population
Population
Change 2024-2034
Current
Parkland (ha)
2024
Parkland Per 1,000
Future
Parkland (ha)
2034
Parkland Per 1,000
15-Duffin Heights 5,754 12,069 6,315 3.6 0.63 8.9 0.74
Claremont & Area 1,092 1,263 170 2.5 2.29 4.2 3.33
Greenwood, Kinsale &
Estate Clusters 621 699 77 2.7 4.35 2.7 3.86
Remaining Rural 2,477 2,593 117 4.6 1.86 4.6 1.77
Established Area Total 90,706 103,223 12,518 169.9 1.87 176.9 1.71
* industrial area, excluded from calculationsLegend: Red = Below the parkland provision target for this type of community (priority acquisition area);Yellow = 0% to 100% above the target; Purple = more than 100% above the target
Table 31: Parkland Provision Area Totals, Existing and Planned
All of Pickering
2024 Population 2034 Population
Population Change 2024-2034
Current Parkland (ha)
2024 Parkland Per 1,000
Future Parkland (ha)
2034 Parkland Per 1,000
Mixed Use Areas 6,260 20,090 13,829 8.6 1.37 9.2 0.46
New Communities 5,953 25,685 19,732 2.4 0.40 56.4 2.20
Established Areas 90,706 103,223 12,518 169.9 1.87 176.9 1.71
City Total 102,919 148,998 46,079
Legend: Red = Below the parkland provision target for this type of community (priority acquisition area); Yellow = 0% to 100% above the target;
Based on the preceding analysis, the following table identifies areas of the city where parks and parkland are not as locally accessible. It is suggested that these areas be considered priority areas for parkland acquisition.
Table 32: Current and Future Parkland Shortfalls – Parkland Acquisition Areas
(ranked by population, with populations over 5,000 persons bolded for emphasis)
Future (2034))
1.Amberlea (pop. 12,965)2.Duffin Heights (pop. 6,315)3.New Community (Seaton)neighbourhoods (pop. 5,953)*4. Highbush (pop. 5,754)5.Woodlands (pop. 3,370)
6.Rosebank (pop. 3,234)7.Rougemount (pop. 3,087)8.Dunbarton (pop. 2,699)9.Rouge Park (pop. 1,494)
1.City Centre (pop. 20,090)2.Amberlea (pop. 12,740)3.Duffin Heights (pop. 12,069)4.Lamoureax (pop.11,752)5.Highbush (pop. 6,164)6.Rougemount (pop. 4,933)
7.Woodlands (pop. 4,410)8.Rosebank (pop. 3,367)9.Dunbarton (pop. 2,908)10.Rouge Park (pop. 2,324)
*lower priority due to new parkland coming online
Many of the City’s mixed use areas have (or will have) below average supplies of parkland. As residential growth is anticipated within these locations, the pressure for
Current (2024)
118 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
parkland will continue to increase over time. It will be important to ensure that an adequate supply of parkland is available within these areas, or within walking distance, to respond to an increase in population over the long-term. The City should be prepared
to acquire lands in these areas as they become available and to explore other strategies
(both capital and programmatic) to enhance recreation and community activities in these areas.
It is also noted that there are locations within Pickering’s urban area that are parkland deficient but are outside of the designated mixed use areas. These existing
communities are generally older and well established with limited development potential
that could generate parkland acquisition opportunities – these areas will generally be a lower priority for parkland acquisition.
Equitable distribution is a key principle for the city’s parks system. Growing areas with inadequate parkland supplies should be a priority for the City to address through both
the development process and direct acquisition via cash-in-lieu and other financial tools.
In this way, the City can work to maintain parkland provision standards, while also improving accessibility to those that are most in need.
The following strategies may be considered for addressing parkland gaps and shortfalls within Priority Acquisition Areas. These are generally listed in order of
priority.
1)On an ongoing basis, evaluate proposed development applications for futurepark dedication and connectivity opportunities (e.g., sidewalks, trails, etc.). Whileexpansion to existing parks may not directly enhance overall accessibility, it canimprove economies of scale and should generally be encouraged. For
development applications in other areas of the city, consider the potential for off-
site conveyance within priority acquisition areas (where appropriate andsupported by policy).
2)Evaluate other municipal or public lands (not currently designated as parks)within these areas for their ability to be used as parkland or – at a minimum –
accommodate a public playground.
3)Consider improvements to parks (including park programming) to enhance activeand passive recreational opportunities in the vicinity of the growth area.
4)Encourage voluntary conveyance, donations, gifts, and bequests from individualsor corporations.
5)Monitor real estate opportunities and seek to purchase (or swap) one or more
properties that could be developed as a municipal park. This may be the highestcost option and would require additional resources.
Recommendations – Park Distribution and Priority Acquisition Areas
51.Prepare a parkland acquisition strategy to enhance current and futurecommunity access to parks, with consideration of alternative acquisition tools.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 119
Recommendations – Park Distribution and Priority Acquisition Areas
The strategy should confirm priorities for land acquisition (including opportunities to secure larger park blocks for community-serving amenities) and a budget for
the annual allocation of funds.
52.Use the priority mapping in this plan to inform land acquisition and work withother municipal departments to secure land and/or enhance programming in highpriority areas (informed by the proposed parkland acquisition strategy).
53.Strengthen collaboration with public agencies (e.g., schools, local and other
levels of government, utility and infrastructure agencies, etc.) to facilitatecommunity access to parks, trails, and recreation spaces on non-municipallyowned sites. Consider developing a framework to improve connections to (andprogramming of) these spaces.
120 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
7.4 Parkland Policy
This section examines policy approaches to be considered through future updates to the City’s Official Plan and parkland dedication procedures. Additionally, a comparative analysis of three other Greater Toronto Area municipalities was undertaken to inform
the analysis of Pickering’s parkland policies and approaches (see Appendix H).
Legislative and Policy Scan
Summarized below are applicable provincial and local policies that have relevance to the analysis of parkland provision and policy.
Provincial Policy Statement
The Provincial Policy Statement (PPS), issued under the authority of the Planning Act,
sets a vision for land use planning in Ontario. The PPS is a significant document since it provides policy direction on matters of provincial interest as it pertains to land use planning and development. Regional and local planning policies (including those prescribed through Official Plans) must be consistent with the PPS.
On April 6, 2023, the province released for comment the proposed 2023 Provincial
Planning Statement. It proposes to repeal “A Place to Growth – the Growth Plan for the Greater Golden Horseshoe” and the 2020 Provincial Policy Statement and replace both with an integrated policy statement.
Policy 3.9 of the proposed policy statement addresses Public Spaces, Recreation,
Parks, Trails and Open Space (see below).
Healthy, active, and inclusive communities should be promoted by:
a) planning public streets, spaces and facilities to be safe, meet the needs of
persons of all ages and abilities, including pedestrians, foster social interaction and facilitate active transportation and community connectivity;
b) planning and providing for the needs of persons of all ages and abilities in the
distribution of a full range of publicly-accessible built and natural settings for
recreation, including facilities, parklands, public spaces, open space areas, trails
and linkages, and, where practical, water-based resources;
c) providing opportunities for public access to shorelines; and
d) recognizing provincial parks, conservation reserves, and other protected areas,
and minimizing negative impacts on these areas.
Among other items, the PPS also outlines the importance of active transportation and green infrastructure, mitigating impacts of climate change, and a clean and healthy environment.
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Ontario Planning Act
Parkland conveyance authority is established in the Planning Act, R.S.O., 1990, c. P.13 and facilitated through the City’s Official Plan policies. Specifically, this includes
Planning Act Section 42 (which pertains to parkland conveyances associated with
development and redevelopment, to be imposed by by-law) and Sections 51.1 and 53 (which pertain to parkland requirements as a condition of plan of subdivision approval and consent).
Figure 13: Parkland Dedication Sections in the Ontario Planning Act
Under the Act, municipalities may levy a standard rate of 5% of developable residential lands (or cash-in-lieu) or 2% of commercial and industrial lands, or an alternative rate of up to one hectare of land for every 600 hundred residential units (this rate was 1
hectare per 300 units prior to November 28, 2022) or an equivalent to one hectare of land for every 1,000 units when requiring cash-in-lieu of land (this rate was 1 hectare per 500 units prior to November 28, 2022).
The alternative rate typically generates more parkland when densities exceed 30 units per hectare when accepting land and 50 units per hectare when accepting payment,
although recent changes to the Act have instituted caps on this (10% of land or its value for sites under 5 hectares, and 15% for sites greater than 5 hectares).
Figure 14: Residential Parkland Dedication Rates in the Ontario Planning Act
*no conveyance may exceed 10% of the land for sites under 5 hectares or 15% of the land for sites 5hectares or larger.
Planning Act
Section 42 (applies to development and redevelopment)
Section 51.1 (applies to plans of subdivision)Section 53 (applies to consents)
Alternative Rate:land value (1 ha per 1,000 units) -capped*
Alternative Rate:land (1 ha per 600 units) -capped*
Standard Rate:land or land value (5% of site)
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In recent years, significant changes have been proposed to the parkland dedication requirements established in the Planning Act:
• Bill 108 (More Homes, More Choice Act, 2019) proposed sweeping changes to
parkland dedication requirements, but these changes were not brought into force as they were ultimately further amended through Bill 197.
• Bill 197 (COVID-19 Economic Recovery Act, 2020) introduced a sunset clause
for existing parkland dedication by-laws that use the alternative rate (September 18, 2022); new by-laws are appealable to the Ontario Land Tribunal.
• Bill 109 (More Homes for Everyone Act, 2022) amended parkland requirements on lands designated as transit-oriented communities, including allowances for
encumbered lands; these changes would apply to planning in the Pickering GO
Station area as this is designated as a Protected Major Transit Station Area.
• Bill 23 (More Homes Built Faster Act, 2022) was introduced in October 2022 and came into effect on November 28, 2022. This Act introduced significant changes
to parkland dedication requirements (among many other aspects of the Planning
Act, Development Charges Act, etc.), including but not limited to reductions in the alternative parkland dedication requirement.
The recent changes introduced by the COVID-19 Economic Recovery Act (Bill 197) and the More Homes Built Faster Act (Bill 23) will result in at least a 50% reduction in parkland provision in areas of higher density – and allow for the conveyance of poorer quality lands – in approved developments moving forward.
A summary of some of these recent changes is provided below:
• The maximum alternative dedication rate has been reduced by 50% to 1
ha/600 units for parkland and 1 ha/1000 units for cash in lieu. Further, the legislation caps the maximum alternative dedication rates at 10% of the land for sites under 5 ha and at 15% for sites greater than 5 ha. This will dramatically reduce parkland dedication and cash-in-lieu to the City for applications under Section 42 (development and redevelopment outside of plans of subdivision).
Parkland requirements are not scaled to density.
• Affordable residential units14, attainable residential units, inclusionary zoning residential units, non-profit housing, and additional residential unit developments are exempt from parkland dedication and cash-in-lieu requirements.15 This
change will also reduce parkland dedication and cash-in-lieu to the City, possibly
increasing the financial burden on taxpayers and/or leading to reduced levels of park service.
14 Most recently, the Province introduced the Affordable Homes and Good Jobs Act, 2023 (Bill 134) which amended the definition of affordable residential units.
15 As of the date of writing, this statutory exemption is not in effect for affordable residential units, attainable residential units, and inclusionary zoning residential units pending release of a bulletin.
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•Parkland rates are frozen as of the date that a zoning-by law or site planapplication is filed. The freeze is effective for two years after approval. This will
reduce cash-in-lieu payments to the City.
•To take effect at a future date, developers will be able to identify the land theyintend to convey to the municipality for parkland. These lands may includeencumbered lands and privately-owned public space (POPs). If agreement
cannot be reached, the municipality or the landowner can appeal to the OntarioLand Tribunal. This may result in less suitable lands being accepted as parklanddedication.
•There is a new requirement for municipalities to spend or allocate at least 60%
of the monies in their parkland reserve account at the beginning of each year.This will create challenges for long-term planning and implementation of parkprojects.
•Municipalities are required to develop a parks plan before adopting Official Plan
policies imposing the alternative rate and passing a parkland dedication by-law.
The Parks Plan must examine the need for parkland in the municipality, be madeavailable to the public (including as part of the legislated consultation process inpassing a parkland dedication by-law), and include consultation with every schoolboard that has jurisdiction in the municipality.
Envision Durham Official Plan (2023)
The 2023 Envision Durham Official Plan establishes the land use structure (urban, rural, green lands, and transportation systems) for Pickering and other lower-tier municipalities in Durham. Recreation and parks are supported throughout the Plan, including objectives that support strengthening these offerings in strategic growth areas
and regional nodes.
Several policies of council include support for the development of healthy, sustainable and complete communities that incorporate safe and publicly accessible recreation areas, parks, open spaces, trails and other recreation facilities. These include an integrated and easily accessible open space network with active recreational facilities,
urban squares, green spaces, parks and informal gathering spaces generally within 500
metres of all residents.
City of Pickering Official Plan (Edition 9)
Section 16.29 of the City of Pickering’s Official Plan (Edition 9) provides policies for the conveyance, design, and development of parklands. These policies require the
conveyance of land or payment in lieu to the municipality for park or other public
recreational purposes in the following amounts:
•for residential development, an amount not exceeding 5% of the proposed landto be developed;
•for high density residential and mixed-use areas, a rate of up to one hectare foreach 300 dwelling units proposed; and
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•for commercial or industrial development, an amount not exceeding 2% of theproposed land to be developed.
The Official Plan states the following in relation to the acceptability of parkland:
“[the municipality] shall not accept as parkland conveyance lands required for
drainage; valley and stream corridor or shoreline protection purposes; lands
susceptible to flooding; steep valley slopes; hazard lands; lands required to be conveyed to a public agency other than the City of Pickering; and other lands
unsuitable for park development.”
These policies do not fully reflect the updated legislative changes made to the Planning
Act and will need to be updated and brought into compliance. The provisions of the
Planning Act override these policies and the provisions of the City’s current parkland conveyance by-law. The City is expected to review and update these policies during its
Official Plan Review.
Parkland Conveyance By-law (By-law Number 7955/22)
The City passed a new Parkland Conveyance By-law on June 11, 2022. This was following royal assent of the COVID-19 Economic Recovery Act, 2020 (Bill 197) but prior to the passing of the More Homes Built Faster Act, 2022 (Bill 23), both of which
created notable changes to parkland dedication requirements, allowances, exemptions,
administrative processes, etc. Like Pickering’s Official Plan, the Parkland Conveyance By-law should be brought into compliance with the current Planning Act; until such time, the provisions of the Planning Act will override the provisions of the City’s current by-law.
The current by-law implements the Official Plan policies for the conveyance of parkland (free and clear of all liens and encumbrances) or payment in lieu for residential (including high density and mixed use), commercial, and industrial development and redevelopment.
Not identified herein, but important to the administration of a new by-law, are
requirements related to exemptions, credits, land valuation (i.e., cost per residential unit), payment, reserve accounts, by-law administration and review, etc. These matters should be given appropriate consideration through the next by-law update and/or development of a parkland dedication procedure.
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Recommendations – Parkland Policy
54.Update the parkland dedication requirements and related policies within the Cityof Pickering’s Official Plan and Parkland Conveyance By-law to reflect thechanges enacted through the More Homes, Built Faster Act (Bill 23) and related
legislation, with further consideration of the recommendations within this Ten
Year Plan. Consideration may also be given to developing a procedureestablishing the guidelines and process for administering the ParklandConveyance By-law.
The Relationship between Density and Parkland
For many years, the parkland dedication tools within the Planning Act existed to respond primarily to the needs of communities that grew through lower density subdivision and greenfield site development, much like Pickering’s traditional
development patterns. The standard 5% parkland rate generally provided parkland amounts that addressed the needs for neighbourhood and – to some extent – community parks.
As communities began to grow inward and upward and densities rose, this 5% standard rate proved inadequate as it would not generate sufficiently-sized parkland parcels
given the smaller development sizes. The alternative rate was then devised to better align parkland requirements with service needs in higher density areas. This alternative rate (initially 1 hectare per 300 units) was typically applied to residential developments or redevelopments outside of the subdivision process, often when densities exceeded 15 units per hectare, such as infill townhouses or other low to medium-density
developments.
In November 2022, this alternative rate was reduced by 50% to one hectare per 600 units (or one hectare per 1,000 units for cash-in-lieu) due to the much higher residential densities being experienced in Ontario’s larger urban centres. One reason for these changes is that the resultant parkland requirement had the potential to consume most or
all of the development site (particularly for very high density developments), impacting the viability of the development. Furthermore, depending on the density of the development, the rates did not accurately reflect needs (keeping in mind that many apartments and condos have fewer persons per unit than traditional subdivisions), particularly for those in infill locations that were being promoted to achieve other city-
building objectives. However, these changes have had a dramatic impact on the ability for municipalities to secure sufficient parkland to serve growth areas and are requiring new approaches to building complete communities.
Striking an appropriate balance across Pickering’s various urban, suburban, and rural contexts is vital. While the standard 5% parkland rate remains an appropriate tool for
addressing needs in Pickering’s lower density greenfield areas, the alternative rate is a more appropriate tool for the City’s built-up areas, such as the City Centre and key nodes and corridors. However, planning, designing, and maintaining parks in
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intensifying areas presents several new challenges, including smaller parkland blocks that are used more intensely and are thus more costly to construct and maintain. Given the scarcity and higher cost of land in these areas, new tools are required to acquire
suitable land for parks and to program these parks to meet the unique range of needs.
Encumbered Lands
Two options that are becoming more common in urbanizing communities include Privately-Owned Public Spaces (POPs) and Strata Parks. While fee simple (municipal ownership) will always be the City’s first option and priority, it is expected that
alternative options may be presented as potential opportunities to address a portion of
growth-related parkland needs within intensification areas over time.
Privately-Owned Public Spaces
•As the name states, POPs are spaces provided by private landowners that are
universally accessible and open to the public, such as plazas, courtyards, or
pedestrian walkways that create the opportunity for community-building andinteraction. They are intended to be small “breathing spaces” that fit best indense urban environments. They seldom have playgrounds or mature trees.
•To truly be accessible to the public, they must be in locations that complementand/or expand on existing or future parks. They have different levels of servicefrom public parks and should not be considered replacements for functionalparkland.
•POPs can be secured through a variety of means, including through Section 37
of the Planning Act and Site Plan Agreements. Historically, few municipalitiesaccepted POPs toward the required public parkland dedication, but this has beenchanging with the new Bill 23 legislation.
•Some allowance for privately-owned public spaces is currently made for urban
squares in Seaton through Section 11.13(f) of Pickering’s Official Plan. Thecreation of POPs is also occurring as part of the Universal City developmentwithin the Pickering Major Transit Station Area.
•Although POPs will generally be discouraged, the City of Pickering may considercounting them toward the parkland dedication requirement only whereappropriate legal agreements are established guaranteeing that the park space isdesigned, built, and maintained to City standards, and that it is open andaccessible to the public at all times (or otherwise to the satisfaction of the City).
POPs are not appropriate in new community areas or any locations outside ofmixed use areas.
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Strata Parks
•Strata ownership is used where a parkland element is to be built over the top of
some underground structure or facility (such as a parking garage, stormwater
management facility, highway underpass, etc.).
•Strata parks can be owned by the City under agreements established through theCondominium Act and be fully accessible to the public. It is vital that they be
accompanied by a management agreement and consideration of long-termmaintenance costs as strata parks have a more limited lifespan due to thewaterproofing membrane over structures, requiring significant disruption to thepark and park infrastructure above. These costs need to be captured in thefinancial valuation and long-term agreement.
•Stratified parks often have encumbrances that prohibit certain types ofconstruction within the park due to weight limits or intrusions (e.g., tree roots,pilings, etc.) or other accessibility concerns. It is important that the municipalityexercise control over the design and development of the site to ensure that it
contains necessary amenities and is designed to municipal standards (e.g.,
accessibility, maintenance, etc.). In recent years, strata parks have beenaccepted as partial parkland credits in some communities (at a discounted rate atthe discretion of the City).
•Although strata parks will generally be discouraged, the City of Pickering may
consider counting them toward the parkland dedication requirement at adiscounted rate at the discretion of the City and only where appropriate legalagreements are established to address park design and construction standards,public access, and maintenance costs.
Traditionally, encumbered lands (e.g., POPs, strata parks, natural/hazard lands, etc.)
were excluded from the required land dedication amounts by municipalities as they are not suitable replacements nor equivalent to community parkland. Through the Planning
Act regulations being developed in support of Bill 23, landowners will now be allowed to identify lands to meet parkland conveyance requirements, within regulatory criteria (not
yet developed). Municipalities may enter into agreements with the owners of the land to
enforce conditions and these agreements may be registered on title. The suitability of land for parks and recreational purposes will be appealable by the municipality to the Ontario Land Tribunal.
Encumbered lands are more expensive to maintain and harder to program. As a result,
there are concerns that developer-identified lands may not fully contribute to the overall
parks and open space as there is a greater potential for the lands to be in unsuitable locations, be under-sized, or not be functional to accommodate the required amenities. It is common for municipalities to have location and development criteria for parkland embedded within their Official Plans, including restrictions for encumbered lands,
hazards lands, steep slopes and unstable lands, environmentally protected lands,
rights-of-way and easements, contaminated lands, etc.
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Accepting encumbered land for parks is a more complex process and one that requires long-term maintenance, cost-sharing, and access agreements with developers to ensure that the municipality can continue to maintain POPs and strata parks to
municipal standards.
Recommendations – Encumbered Lands
55.Establish policies surrounding privately-owned public spaces (POPs) andstrata parks. While these spaces will generally be discouraged, they may becounted toward the parkland dedication requirement at the discretion of the City(with strata parks being accepted at a discounted rate). Appropriate legal
agreements must be established to address park design and construction
standards, public access, maintenance, etc. POPs are not appropriate inlocations outside of mixed use areas.
56.Establish clear location and development guidelines describing whatconstitutes acceptable parkland dedication from developers. These guidelines
should consider restrictions for encumbered lands, hazards lands, steep slopes
and unstable lands, environmentally protected lands, rights-of-way andeasements, contaminated lands, etc. and be included within the Official Plan orparkland conveyance procedure.
Parkland Acquisition
There are several tools and options available to municipalities in Ontario as it relates to the acquisition and improvement of lands for parks purposes. Amongst these tools, the practice of requiring parkland dedications as a condition of subdivision or development
has long been the primary tool for the City of Pickering. Use of cash-in-lieu to purchase parkland as well as other acquisition tools are projected to become more prominent in the future, especially for acquiring parkland outside of mixed use areas.
Parkland dedication through the Planning Act (Bill 23) is likely to be insufficient to meet the full range of parkland needs. Furthermore, the ability to secure larger parcels for
parkland is reduced within time due to land scarcity and higher land values, especially in areas undergoing intensification. Land dedication must be supplemented by other measures such as land use agreements, purchase, etc. As a result, it is recommended that the City adopt a “parkland-first” approach that directs staff to prioritize the dedication of land in appropriate locations rather than cash-in-lieu of parkland during the
development review process. This means that:
•Policies and practices that support on-site parkland dedication and encouragefront-end acquisition of parkland should be encouraged.
•Parkland will be required when development will result in a park block that: (i)meets or exceeds the minimum size established for the park class; or (ii)expands an existing park site.
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•The City may still accept cash-in-lieu of parkland when it is determined to bemore beneficial, especially for development projects that would not meet the
minimum requirements. For example, cash-in-lieu may be considered for higher
density development or redevelopment sites that cannot physically accommodatea typical park block. In addition, POPs may be permitted, subject to the executionof an agreement acceptable to the City and other criteria established by the Cityfrom time to time.
•Unless otherwise specified through the Planning Act, all lands to be dedicated forpark purposes must be to the City’s satisfaction and will not include restrictedlands such as Environmental Protection designated lands, hazard lands, steepslopes, contaminated lands, easements, stormwater ponds, etc.
The City is not expected to be able to maintain parkland service levels or achieve targets through parkland dedication alone. A greater focus will need to be placed on park quality and partnerships with other land owners to ensure that residents have access to a varied and robust parks and open space system.
Additionally, the City may need to utilize alternative financial tools and other parkland
acquisition approaches beyond traditional parkland conveyance mechanisms to meet the City’s parkland targets. Some supplemental parkland acquisition strategies that the City may pursue, include (but are not limited to):
a)Municipal land purchase or lease (ideally in priority parkland locations, expansionof existing park sites, or unserviced land as part of a future land banking
strategy), funded from cash-in-lieu reserves, Community Benefits Charges,general tax funding, grants, donors, etc.;b)Land exchanges or swaps;c)Off-site conveyance of parkland (ideally in priority parkland locations);d)Donations, gifts, and bequests;
e)Establishment of a Parks Foundation (e.g., community, corporate or municipaldonations towards parkland acquisition);f)Reallocating surplus municipal lands to park use; and/org)Partnership/joint provision of lands with local partners under agreement.
In addition to other services not provided by Development Charges, Community
Benefits Charges can be imposed to recover the costs for land for parks or other public recreational purposes in excess of lands conveyed or funded by cash-in-lieu of parkland payments under sections 42 and 51 of the Planning Act. Consideration may be given to updating the City’s Community Benefits Strategy and By-law to include the consideration of parkland acquisition beyond the amounts available under the
provisions of the Planning Act.
The following criteria may be used to assess the suitability of potential park sites on a case-by-case basis. As identified in the Official Plan, the location and configuration of land conveyed must be suitable for park development and shall not include: lands required for drainage; valley and stream corridor or shoreline protection purposes; lands
susceptible to flooding; steep valley slopes; hazard lands; lands required to be
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conveyed to a public agency other than the City of Pickering. However, recent changes to the Planning Act (though not yet enacted through regulations) will allow developers to identify and dedicate encumbered lands. It is recommended that the City use this
criteria to more fully develop clear guidelines describing what constitutes acceptable
parkland dedication from developers.
Table 33: Potential Parkland Site Evaluation Criteria
Criteria Description
Site Conditions Consider topography (tableland is strongly preferred), parcel configuration (square or rectangular), drainage, and soil conditions (e.g., free of
environmental contaminants).
Size Should meet or exceed minimum standards established for park classification.
Centrality Proximity to the population to be served, in keeping with the service radius and population targets of the park type.
Land Use Impacts Compatibility of adjacent land uses; conformity with Official Plan or Secondary Plan (if applicable).
Connectivity Integration of trail and open space linkages or corridors (where applicable).
Accessibility Site has substantial frontage on a public road, reasonable access to public transit and/or sidewalks (in urban areas), etc.
Partnerships Potential joint use with school sites or other municipal assets.
Visibility Ability to create a local or city-wide focus.
Natural Features Park site is not encumbered by features of cultural or natural significance.
Added Value Access to the waterfront, viewpoints, or vistas (where applicable).
Constructability Active parks should generally not be built in floodplains, stormwater overflow
areas, valleylands, easements, encumbered lands, etc.
Services Active park sites have full municipal services (or the potential for full services, including water, storm sewers, and electrical services; sanitary servicing may be required for some higher-order parks) to the property line.
Availability Timing of parcel availability should coincide with preferred timing of park development.
Cost Reasonable land valuation (if applicable); publicly-owned lands offer the greatest potential.
Recommendations – Parkland Acquisition
57. Adopt a “Parkland First” approach that prioritizes parkland conveyance over cash-in-lieu of parkland and privately-owned public spaces in order to address
parkland requirements.
58. Consider updating the City’s Community Benefits Charges Strategy and By-law to include the consideration of parkland acquisition beyond the amounts available under the provisions of the Planning Act.
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Recommendations – Parkland Acquisition
59.Utilize alternative financial tools and other parkland acquisition approachesbeyond traditional land conveyance mechanisms as necessary to meet the City’s
parkland targets to 2034. The City is encouraged to actively pursue directpurchase of land in priority acquisition areas and unserviced land with futureparkland potential.
Cash-in-lieu Considerations
Policies in the Official Plan provide the City with the discretion to take parkland or cash-in-lieu of parkland (or a blend of the two); however, there is little guidance to assist the City in making this determination. It is recommended that the City clearly articulate the
criteria that will be used to determine when to accept cash-in-lieu of parkland
dedication.
Some potential criteria include (but should not be limited to):
a)Where the area served by the development is determined (at the City’sdiscretion) to be have sufficient existing active public parkland to accommodate
existing residents and needs (as well as projected population growth)
b)Where the development would not result in a suitably-sized, shaped or functionalpark site;
c)Where it is preferable to use the cash-in-lieu to expand existing parks directlyserving the area or where the City identifies land in a more appropriate or
accessible location that has been, or is to be, acquired by the City; and/or
d)Where the taking of parkland from the site may reduce the number of dwellingunits such that it renders the development or redevelopment unfeasible (note: Bill23 instituted alternative requirement caps of 10% to 15% to eliminate thispossibility).
The City maintains a parkland dedication reserve fund with a balance of approximately
$2.7 million as of the end of 2023. Nearly $6.3 million was added to this account January 2017 and June 2023, with a portion of these funds going to purchase an extension to the waterfront portion of Rotary Frenchman’s Bay Park West. Future amounts will fluctuate from year-to-year subject to how the funds are planned to be
allocated and future levies collected by the City.
The Planning Act now requires municipalities to spend or allocate 60% of monies in parkland reserve funds each year. This provision was recently undated by regulations for Bill 185 (Cutting Red Tape to Build More Homes Act, 2024) stipulating that these reports must include details on how the amounts spent addressed the need for parkland
identified within the parks plan. This raises the significance of both short- and long-term
planning for parkland and park assets. Frequent updates to this parks plan and recreation amenity needs assessments should be supported.
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Since 2014, about one-half of the parkland cash-in-lieu funds have been used for land acquisition, while one-half has been used to support capital renewal or construction projects within parks. Given the anticipated need to acquire
additional parkland to meet the targets established in this plan, the City is strongly advised to use cash-in-lieu of parkland for acquisition, rather than capital improvements in parks. The priority for acquisition of lands for public parkland should be in proximity to the development (generally within 400 metres).
The funds in this account are accrued through a fee in lieu of parkland dedication that
the City of Pickering charges for development and redevelopment when land is not
required. Municipalities may require independent land appraisals for each development application in order to establish the fee and/or have the option of establishing set fees for various classes of residential dwellings. The City should conduct an assessment of its parkland valuation processes and fees to determine an approach that is equitable,
transparent, consistent, and reflective of current land values. While the use of a per unit
rate may be appropriate for some lower density residential developments in infill situations16, given the variation of land values within intensification areas, a land appraisal approach may be most appropriate for establishing the charge in mixed use areas. Appraisals shall be prepared by an accredited appraiser for approval by the
City’s real estate division, with provisions established for disputes.
Recommendations – Cash-in-lieu Considerations
60.Clearly articulate the criteria that will be used to evaluate the acceptance ofcash-in-lieu of parkland dedication.
61.Prioritize spending parkland cash-in-lieu funds on land acquisition, rather thancapital improvements in parks.
62.Institute a program to track the annual spending and allocation of cash-in-lieu funds in keeping with Planning Act requirements (at least 60% of moniesmust be spent or allocated at the beginning of each year) and to evaluate theperformance of this Ten Year Plan.
63.Conduct an assessment of cash-in-lieu of parkland valuation processes andfees, with the goal of ensuring that cash-in-lieu of parkland rates are reflective oflocal market conditions.
16 Note: additional residential units and non-profit housing are exempt from parkland dedication.
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Open Space Planning
Open space lands and natural areas (e.g., wetlands, valleylands, woodlands, environmentally constrained areas, and a variety of other natural heritage landscapes) –
addressed under Section 3.5 of Pickering’s Official Plan – serve numerous functions:
they protect and conserve natural features; they preserve habitat for various species, including threatened and endangered species; they provide buffers to development (protecting people and property from damage); they provide visual breaks within an otherwise urban/suburban landscape; and they enhance air and water quality. They are
not counted toward parkland dedication requirements.
In Pickering, these lands are in a blend of public and private ownership. Conservation areas, school boards, other government agencies, and private landowners may also own and make lands available for public use from time to time. The City is encouraged to continue working with partners to support community access to parks and open
spaces. The City’s Official Plan recognizes the role of these open spaces in contributing
to opportunities available for the public to experience the outdoors and in supplementing municipal parkland supplies.
Where appropriate, open space lands may be conveyed to the City or other public authority at no cost (gratuitous conveyance). Additional options for the securement of
open space and environmentally significant lands include land exchange, donation/land
trusts, conservation easement/purchase of development rights, leasing, purchase, and partnerships. Conservation easements are particularly useful when protecting open space lands as they allow title to the land to remain in private ownership, but development rights to be restricted based on the specific conservation requirements.
However, not all lands need to be publicly owned in order to be permanently protected.
Environmental policies and practices at the municipal and provincial levels are in place to manage sensitive areas.
Within the context of this plan, a key priority for open space conservation are those lands that provide connections between parks and other public areas to allow for a
continuous parks and open space system, including active transportation opportunities.
Passive maintenance and development of these lands is anticipated, as directed by site-specific management plans (often in partnership with other agencies).
Initiatives that encourage residents to learn more about their parks and protected areas should also be supported. This can be achieved by establishing walking trails within or
surrounding key open space lands (while respecting policies relating to the protection of
sensitive wildlife and natural habitat). Open space lands can also offer tremendous opportunity for experiential learning and cultural interpretation, which in turn can assist with educating the public about the need for active conservation and restoration.
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Recommendations – Open Space Planning
64. As opportunities arise, evaluate the potential to secure and/or protect open space lands that are outside the parks system and that provide important connections between parks, trails, and other public areas, having regard to the
Official Plan and partner agency requirements.
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7.5 Park Design, Maintenance, and Renewal
City of Pickering parks are well maintained and cared for. There is variety of design within the parks system, with different park types performing diverse functions, such as community gatherings, athletics, passive recreation, free play, open space buffers,
environmental appreciation and conservation, civic beautification, and more.
Notable observations include:
•The City regularly inspects its parks and playgrounds, addressing any issues ina prompt fashion.
•The lifecycle condition of park assets is monitored and addressed throughcapital projects on a priority-basis, although the amount of deferred maintenance(e.g., playground replacement) is growing.
•Many of the City’s parks contain mature trees, providing shade to park users and
contributing to environmental goals such as reducing heat and air pollution.
•Naturalization initiatives are supported by the City’s Sustainability Department.Community education remains important to the successful implementation of this
program.
•Public art is prevalent in destination parks, guided by a robust Public Art policy,procedure, and three-year plan.
•Winter maintenance occurs on park pathways that serve as local routes to
schools.
•Cameras are being added to high use park sites to bolster security.
•Park signage (both informational and regulatory) is extensive and generally
consistent (rollout of the signage program continues as resources allow).
•Support infrastructure – such as benches/picnic tables, washrooms, and off-street parking – varies by site, but is generally compatible with contemporarydesign and provision practices.
•Off-street parking is less common in newer communities due to smaller parksizes and more compact community development standards.
•The community survey found demand for additional park washrooms, which is a
common request in all communities, but is not typically feasible to provide in allpark types.
•The City’s waterfront parks are well supported by the community, with requestsfor additional improvements that support the unique role of these parks as
destinations for both residents and visitors.
•A large portion of the City’s parkland is owned by outside agencies (e.g., HydroOne, Ontario Power Generation, etc.). Permission is required before the City
alters or invests in these properties (such as through the addition or renewal of
park amenities) and there are limitations on what will be allowed. For example,
136 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
development of lands within Hydro Corridors is restricted and it is becoming increasingly challenging to receive approvals, even for infrastructure replacement. These lands are encumbered and are not typically eligible for
senior government grants, thus they cannot be considered a complete
replacement for municipally-owned parkland.
•Many of the City’s newer parks are built by developers, allowing them to beprovided earlier in the community development phase. The City has input into the
designs and retains control over approvals.
•Most of Pickering’s stormwater (SWM) ponds have perimeter fences due tomitigate safety concerns caused by their slopes and pond depths. Somemunicipalities have adopted landscape design guidelines (e.g., strategic planting
of thorn bearing trees and shrubs) that serve as effective barriers in place offencing (where supported by SWM engineering standards), making theenvironment more appealing for walking and passive recreation around theperimeter.
The public consultation program and the evolution of the City’s parks system support a
continued broadening of the range of recreation opportunities within local parks. Although new parkland will be required to serve future residents, the focus should be on making the best use of existing park sites, keeping parks relevant considering changing demographics, and improving connectivity and accessibility. Examples include (but are not limited to): adding new elements such as pavilions, unique play experiences, sport
courts, and community gardens; piloting outdoor programming and educational initiatives; and expanding operational practices such as naturalization.
Designing and improving parks requires a strong understanding of community needs, contemporary design practices, operational requirements, and programmatic considerations. These elements require adequate forethought in the planning of the
park parcel itself, well in advance of conveyance and detailed design. Designing spaces to be multi-use or flexible – including spaces that are inclusive, open, and affordable for casual use – helps the City to adapt to shifting needs over time.
The following are best practices that the City of Pickering may use as guidelines in designing or redeveloping parks. Many of these are reflected in recent park designs, but
not formalized in writing.
a)incorporating a blend of active and passive spaces (multi-use) and amenities forpeople of all ages and backgrounds (multi-generational);
b)following accessibility legislation (AODA) and guidelines to accommodatepersons with disabilities;
c)applying Crime Prevention Through Environmental Design (CPTED) principlesfor enhanced safety and security;
d)considering the needs of a diverse and aging population through washrooms andaccess to potable water, seating, shade (trees, shelters, shade sails, etc.),
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pathways, picnic areas and pavilions, and bicycle racks (note: some amenities may not be appropriate for all park types);
e)enhancing connections to nature and preserving and emphasizing cultural and
heritage environments, including interpretive content;
f)considering four-season programming and applying design principles toencourage usage throughout the year;
g)promoting designs that encourage sustainable maintenance practices andclimate resilience;
h)incorporating native and drought resistant vegetative features that are biologically
robust and increase the amount of park space that is dedicated to naturalized,bio-diverse pollinator areas;
i)designing parks adjacent to schools to withstand higher use and sustain healthyturf in order to withstand higher use (e.g., in-field drainage, irrigation, soil
specifications that lessen compaction and increase drainage, soil treatments that
stimulate plant growth, etc.);
j)recognizing, consulting with, and considering the needs of Indigenous Peoples inpark design and programming;
k)utilizing materials that are robust, durable, and mindful of future maintenance
requirements;
l)applying consistent signage and information about park contents, accessibility,etc.;
m)seeking innovative and engaging initiatives that encourage naturalization andenvironmental stewardship, including opportunities for public education and
access;
n)encouraging public art and spaces for cultural expression; and,
o)promoting active transportation connections and a linked open space system.
With many of Pickering’s parks in latter stages of their life span, improvements and enhancements are necessary to address asset lifecycle requirements and to respond to
changing needs. Common triggers for park redevelopment include state of good repair
requirements (aging amenities), under-utilized and/or redundant facilities, emerging needs, partnership opportunities, nearby residential growth and increased demand for programable space, coordinated civic works projects, and more – usually multiple factors play into the decision to launch a major capital project. The possibilities for
parkland renewal are limitless, but typically include new and upgraded amenities and
accessibility enhancements.
Park renewal and development projects should be accompanied by public and stakeholder input, park-specific design plans, and business planning to obtain accurate costing associated with any capital works. Once a park is identified as a candidate for
redevelopment, the City develops a detailed park design plan with input from the
community and stakeholders. Concept plans are developed, with consideration of
138 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
phasing and impact on existing uses. Funding is then sought through the long-term capital budget and sometimes supplemented from other sources (e.g., grants, partners, etc.). This process can take several years and is often reflective of site-specific
circumstances and the availability of funding.
In recent years, the City has prepared park design plans for several sites such as:
•Rotary Frenchman’s Bay West Park – capital works completed in 2023
•Beachfront Park – capital works schedule to begin in 2024
•Claremont Memorial Park – phase one is complete (improvements to balldiamond, etc.) with phase two (improvements to outdoor rink and playground,and possibly a new skate spot) currently unfunded
•Hydro Corridor Park (north of Kingston) – draft design prepared (includes newskateboard park, community gardens, off-leash dog area, one senior and onejunior soccer field, and off-street parking); development requires approval fromHydro One
•Seaton Parks – several park concepts (e.g., Dave Ryan Community Park, etc.)have been prepared or are in progress as this new community is developed
In the near term, park-specific planning is anticipated to begin for:
•Maple Ridge Park – site is adjacent to school with aging park amenities; potential
to convert under-used ball diamond to alternative uses
•Greenwood Community Park – the new Pickering Heritage & Community Centrewill replace the aging Greenwood Community Centre, presenting an opportunity
rethink this park and its ability to complement programming at the adjacent
Pickering Museum Village
Partnership and growth opportunities may also necessitate the need for site-specific planning for other key park properties across Pickering. For example, the City is working with TRCA to examine the potential to introduce new activities and programming at the
Petticoat Creek Conservation Park. Additionally, sites in proximity to high density mixed
use centres (e.g., Ernie L. Stoud Park, Beechlawn Park, etc.) may also have the ability to serve a greater range of needs through improvements or partial redevelopment.
Recommendations – Park Design, Maintenance, and Renewal
65. Continue to maintain a commitment to universal accessibility, safety, andcomfort within the City’s parks and trails system by:
a.Regularly consulting with the City’s Accessibility Advisory Committee and
ensuring compliance with the Accessibility for Ontarians with DisabilitiesAct (AODA), recognizing that some parks and trails may include areas ofnatural terrain that are more difficult to access.
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Recommendations – Park Design, Maintenance, and Renewal
b.Emphasizing the provision of amenities such as washrooms,benches/seating areas, bike racks, and shade (structures, tree canopy,
etc.) in appropriate park types to address the needs of all age groups.
c.Engaging qualified personnel to undertake a review of all parks and trailsusing Crime Prevention Through Environmental Design (CPTED)principles to identify safety concerns relative to access, sightlines, etc.
66. Continue to provide a balance of active and passive spaces within the parks
system to support all-season recreation and sports, casual use and unstructuredplay, special events, and cultural activities.
67. Continue to support outdoor education, stewardship, and climate changemitigation initiatives through the open space system, such as tree plantings,naturalization efforts, community gardens, butterfly/pollinator parks, and adopt-a-
park/trail programs, in conjunction with community partners.
68. Continue to initiate park redevelopment projects at key sites requiring renewaland evaluate park sites within or adjacent to high density mixed use areas forlonger-term redevelopment. Park redevelopment projects should be identified inthe City’s long-term capital plan and include additional public and stakeholder
consultation.
7.6 Recreational Trails
With the Lake Ontario waterfront, Rouge River, Duffins Creek, and notable naturalized lands in north Pickering, the city boasts an impressive trails system that offers access to
local lands as well as trails systems in adjacent communities.
The City of Pickering owns and/or maintains over 40 kilometres of recreational trails – several of which are connected – including Waterfront Trail and West Duffins Trail. The Trans Canada Trail generally follows the Waterfront Trail (including some on-road segments) and portions of the Duffins Creek Trail, extending north through Greenwood
(Pickering Museum Village) into Uxbridge. Additionally, A volunteer group coordinates maintenance of the Seaton Trail and the Rouge National Urban Park maintains a significant trails system along the city’s western edge, with connections in the south and the north. Many local parks also offer internal trail systems, such as Rotary Frenchman’s Bay West Park, Grand Valley Park, Diana, Princess of Wales Park, and
properties managed by TRCA.
The City has made significant recent improvements along the Waterfront Trail, with more improvements planned for the short-term. There are also plans to expand the trail
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system to create a more comprehensive network, such as through connected trails system in Seaton and region-wide initiatives like the Durham Meadoway17.
The trails are complemented by an extensive sidewalk network, cycling routes, and park
pathways that connect users to a variety of destinations within the city. For on-road
active transportation routes, reference should be made to the Integrated Transportation Master Plan (ITMP, 2021), which is Pickering’s long-term, strategic planning document that directs transportation policies, programs, and infrastructure.
Recreational trails are one of the most highly desirable amenities in any community.
They facilitate low-cost outdoor physical activity opportunities and can be used by
residents of all ages. The demand for trails has been growing in response to an aging but more active population, as well as outdoor recreation trends that began during the pandemic.
Research completed by Trans Canada Trail indicates that 72% of Canadian use trails,
with 89% stating that trails add value to the quality of life in their community.
Furthermore, 69% of Canadians say that easy access to trails and outdoor activities have an impact on where they choose to live.18 During the COVID-19 pandemic, communities across the Province experienced a strong increase in trail usage, highlighting the importance of providing a connected trail network that connects
residents within the city.
Trails also have an environmental benefit as they alleviate road congestion and minimize vehicular emissions, land consumption, and costs for road construction and maintenance. Active transportation can heighten community and social vibrancy by encouraging compact developments and more livable communities where individuals
are more likely to have personal contact with one another.
The popularity of recreational trails in Pickering was demonstrated throughout the consultation process as 52% of households responding to the community survey indicated that they use trails (while 27% reported cycling on trails), which ranked 2nd out of 41 listed activities. Four-fifths (79%) indicated they support the City spending
additional funds to provide more trails (off-road) in Pickering, which ranked 4th out of 36 facility types. Suggestions were received for more trail connections, improved trails (e.g., Seaton Trail, connections to Rouge National Urban Park), lighting, trash cans, and the introduction of programming. Safety and comfort are important components of a successful trail system, including natural landscaping, signage, shade, benches, rest
areas and parking.
17 The Durham Meadoway is a proposed pedestrian and cycling route and linear park that will connect
people to destinations across more than 27 kilometres of Durham Region. In addition to providing a significant east-west recreational facility and active transportation spine, the Durham Meadoway also has
the potential to become a multi-faceted space for people that includes ecological enhancements, public art and community amenities.
18 National Léger Survey Reveals Canadians’ Trail Use on the Rise in 2023. Trans Canada Trail, April 16, 2023. https://tctrail.ca/news/national-leger-survey-reveals-canadians-trail-use-on-the-rise-in-2023/
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The key to developing an effective trail network is to create a connected system of routes that are safe, accessible, and conveniently link users to key destinations (e.g., parks, recreation facilities, schools, commercial areas, waterfront areas, regional trail
networks, etc.).
The opportunities for enhancing trail connectivity in Pickering are primarily through: (1) new community area development (e.g., Seaton, Northeast Pickering); (2) regional trail networks that connect to adjacent municipalities; and (3) new trail development along existing corridors (e.g., Meadoway). The latter will require collaboration with other public
agencies and landowners, but represents an important long-term opportunity for the City
and its residents. In terms of Northeast Pickering, trail connectivity with the open space system and adjacent neighbourhoods (e.g., Seaton, Ajax) will be important to optimizing access for future residents.
In relation to trails, the 2021 ITMP recommended:
•Completing a multi-use trail design and safety audit to identify recommendedupgrades to existing multi-use trails to enhance safety for both cyclists andpedestrians;
•undertaking an active transportation wayfinding study and pilot project, focusedon key trails and cycling corridors; and
•preparing a cycling and trails amenities plan to identify existing and futurelocations for amenities within the public right-of-way along major active
transportation corridors.
In 2019, TRCA developed a Trail Strategy for the Greater Toronto Region. Key strategies include working with partners to complete, expand, manage, and celebrate the Greater Toronto Region Trail Network, and developing a connected trail network within the regional greenspace system. The Strategy serves as a framework to protect
potential trail alignments and to guide the planning, development, and management of
these trails.
In addition to its several strategic objectives and initiatives for the region’s trail system, the Strategy acknowledges the City of Pickering as one of several municipal governments who collaborated with the federal and provincial governments to form
Rouge Park, the largest urban wilderness park in North America. The Park’s historic
Seaton Trail and the active transportation corridor of the Meadoway (an ongoing initiative with the Region and area municipalities) provide linkages to Pickering and its growing Seaton community. The Strategy also recognizes that growing and new communities in Pickering hold exciting prospects to acquire east-west greenway
corridors that would link the Rouge River and Duffins Creek systems to the Oak Ridges
Moraine.
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Figure 15: TRCA Trails Strategy (2019), North East Concept Plan
Recommendations – Recreational Trails
69. Continue to expand and connect the recreational trail network. This includes planning trails within new community areas and working with partners to leverage public sites (such as utility rights-of-ways and other linear corridors) for trail use as
appropriate. Improvements to the on-road cycling network should be guided by the
City’s Integrated Transportation Master Plan.
70. Continue to enhance the trail network by installing and maintaining safety and comfort features – such as lighting, signage, seating, etc. – in appropriate locations and addressing the recommendations for a multi-use trail design and
safety audit, wayfinding study and pilot project, and trails amenities plan within the
City’s Integrated Transportation Master Plan.
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144 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
8.Recreation Service Delivery
8.1 Overview
The City of Pickering believes there is a significant return on investment in parks, recreation, and culture. Some benefits include active and engaged residents, positive
health and social outcomes, as well as pride and cohesion within the community. These
benefits inspire staff and community providers to deliver high quality, enjoyable, and safe opportunities for residents and visitors. Furthermore, continued efforts are being made to ensure that under-represented populations are being welcomed and included, in turn providing a full range of opportunities and equitable participation across
Pickering.
Efforts focus on increasing participation and improving service delivery to provide accessible, local, and enjoyable opportunities. The City has a strong commitment to the residents to promote City-wide opportunities, provide support to not-for-profit groups and coordinate a wide range of services through partnerships, and third-party providers.
The City of Pickering’s recreation delivery system has been strengthened over the years
through approaches that allow for adaptability to changing conditions, including an increasing number of additional residents, older adults, and newcomers to Canada. This includes volunteer efforts that offer expanded programs, increased capacity for events, and community engagement.
Pickering residents have come to enjoy a recreation delivery system that emphasizes:
•A wide range of choices for all residents delivered by the City and otherproviders, including leisure opportunities, sports, creative arts, STEAM (Science,Technology, Engineering, Arts, and Mathematics), general interest programs, etc.
•Quality assurance, safety, and legislative compliance in the delivery ofservice, regardless of who is providing the program or service.
•Collaboration with all providers to identify gaps in service, with the City directly
addressing gaps where there is no suitable community provider.
•Priority allocation and support to eligible not-for-profit volunteer groups,especially those activities serving children and youth. Volunteerism isrecognized as the backbone of the sport and recreation delivery system.
•Intentional efforts to include under-represented communities and/or individualsthrough policy and intentional actions.
•A range of service price points, including free universal opportunities, low-costopportunities, and enhanced service levels to best include all residents.
•Accountability to the public by open reporting on the number of residentsparticipating, satisfaction levels, and efforts to improve service delivery.
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This recreation service delivery review takes into consideration relevant trends, promising practices, the impacts of the COVID-19 pandemic, participation and utilization data, corporate and departmental initiatives, and input from the public, staff, and
Council. Specifically, the review includes direction on the service improvements
highlighted below.
Table 34: Suggested Focus for the Future of Recreation Services
Focus Objectives
Sustaining Service Delivery •Supporting recreation staff in leadership development
•Supporting volunteerism and assisting community groups
•Encouraging community development and partnerships
Expanding Programs and Services in a Growing Community
•Sustaining the Swim to Survive program
•Planning for aquatic, fitness, and recreation programs
•Quality assurance in the delivery of services
•Fill rate targets for programs and services
•Promoting physical activity
•Working inter-municipally in the allocation of facilities
Increasing Participation
of Diverse and Under-represented Residents
•Revising the Access to Recreation Policy
•Addressing gender equity in sport and recreation
•Creating an equity lens toolkit
•Providing safe and welcoming public spaces
Supporting a High-Performing Staff Team •Confirming levels of service
•Developing a ten-year staffing plan
•Supporting staff training and development
•Setting performance targets and measures
8.2 Sustaining Service Delivery
Sustaining the current quality of recreation services within Pickering will take some preparatory thoughts and actions for the future. Residents have come to expect a
variety of quality services and programs that meet the needs of all age groups. To be
prepared for increased participation due to growth and growing participation rates, staff will need to focus on increasing the number of part-time staff members, assisting community groups to attract and retain volunteers, fostering partnerships, and building capacity within the community (community development).
Supporting Part-Time Recreation Staff and Leadership Development
Some of the challenging post-pandemic aspects in delivering programs and services has been keeping pace with the need for part-time staff to deliver services. For example, aquatics requires specific certifications to teach and lifeguard. These certifications require years of training and were disrupted during this time. Leadership
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courses for camp counsellors in training were also lessened and, therefore, the capacity to deliver on current participant needs cannot always be met.
The City of Pickering recognized these challenges and has developed plans to increase
leadership training opportunities and offering some training at a reduced or no cost. This
momentum will need to be maintained for the next few years as the population increases and more program leaders are needed. There have been some innovative approaches that have been taken place throughout Ontario that are also suggested for Pickering. Examples include targeting leadership training in neighbourhoods where
program opportunities are lacking, as well as working with school boards to promote
and support leadership training opportunities.
Supporting Volunteerism and Assisting Community Groups
A recent study19 found that 79% of Canadians over the age of 15 years volunteered in 2018 (prior to the pandemic). In 2022, 55% of Canadian not-for-profits and charities
identified a reduction in the number of volunteers. Many of Pickering’s community
groups echoed this observation, with several sport and recreation organizations experiencing difficulty in attracting and retaining volunteers.
This research study also identified that women from the Baby Boomer and millennial generations tend to volunteer at a greater rate than men, as do Canadians with higher
educational backgrounds. The “I-generation” (Internet-Generation born after 1996)
volunteer at a greater rate than most age cohorts, likely due to a secondary school graduation requirement.
The ability to recruit, train, supervise, retain, and recognize volunteers is an ongoing requirement for the success of all not-for-profit community stakeholder groups.
Operations depend on having a volunteer corps and local groups indicated that they are
currently having difficulty attracting and retaining volunteers. Pickering – through its role in assisting community groups in the delivery of their recreation and sports services – could play a vital role in promoting all volunteer postings, along with their volunteer opportunities. The City of Richmond Hill has had a system in place for many years and
has increased its volunteerism as a result.20 Other municipalities are also providing benefits for volunteers such as free or subsidized access to public swim and skate opportunities.
19 Made in Canada. Volunteer Work Statistics in Canada. 2024. https://madeinca.ca/volunteer-work-
statistics-canada/
20 The City of Richmond Hill publishes a list of all community sport, recreation, and cultural groups and
encourages potential volunteers to contact the groups directly. Not-for-profit community groups are encouraged to list volunteer opportunities and the City will post them on their volunteer site. Richmond Hill will also provide training to community groups on volunteer recruitment and retention. These efforts have assisted community groups in maintaining sustainable operations.
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Encouraging Community Development and Partnerships
Community development is an approach to increase the capacity of programs and services whereby the municipality provides support to community groups that offer
aligned services. In an ideal scenario, all parties work to identify needs and groups are
established and supported in numerous ways depending on needs. A menu of supports offered by the municipality typically includes:
a)Identifying community needs;
b)Finding and allocating appropriate spaces;
c)Coordinating joint promotions and communications;
d) Sharing grant and funding opportunities;
e)Offering municipal grants to assist with start-ups and special projects;
f)Information sharing regarding legislative compliance, industry standards, qualityassurance models, etc.;
g)Sharing and/or supporting virtual training content (access and equity training,
legislative compliance, quality assurance models, etc.);
h)Assisting with volunteer recruitment and retention; and
i)Providing governance assistance where needed.
The City of Pickering helps community groups on an ongoing basis and regularly
communicates to share upcoming events and facility allocation procedures. No staff are
explicitly dedicated to this function, but program and facility staff undertake these communications annually or on an as-needed basis. It is recommended that the Community Services Department study the potential to advance a community development model in order to increase the capacity of the entire recreation system.
Most recreation departments in Ontario have a focused goal to provide meaningful
programs and services to all residents cost-efficiently. These programs and services enhance user experiences and create a sense of accomplishment through skill development. There are often opportunities to work with other service providers and third parties to broaden choices and the number of services offered.
In terms of more formal types of collaboration, the City of Pickering has historically
collaborated with community partners to reduce duplication, share costs and physical assets, and maximize efforts to expand programs and services. For example, the City works with school boards to gain access to selected school gymnasiums and spaces to offer after-school programing to youth. The City has also invested in artificial turf fields
and all-weather track facilities at local schools in order to maximize the benefit of these
assets for the community. Seeking out partners can serve to share resources and reduce duplication.
In a growing community, the use of partnerships becomes more important as the demand for programs and services increases. The City should proactively seek
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partnerships and determine when best to directly provide services or seek out an aligned partner organization to assist. Given the degree of pent-up demand for children’s summer camps, this may be an area that could benefit from the application of
a decision-making framework.
A general rule embraced by many municipalities is to provide core services internally and specialized services through third-party provision, particularly where the municipality lacks the expertise and/or resources. A key deciding factor is whether a financial gain (through cost avoidance or revenue enhancement) can be realized
without unduly affecting quality assurance, customer satisfaction, and legislative
compliance.
Table 35: Considerations for Third-party Program and Service Providers
Scenario Conditions
Continue to Provide Programs and Services Directly
1.The program or service is considered core to the Department, suchas learn to swim lessons to prevent water incidents or older adultservices where a relationship is critical to the success of the programand service.
2.The program meets a sustainable resourcing need such as youthleadership development to enable future skilled staffing in programand service delivery.
3.The program development and delivery meet strong priorities and
require municipal-centric coordination, such as better serving under-represented populations.
Consider Seeking a Third-party Provider
1.The program is specific to a unique population that would be mostappropriately provided by a community partner where the expertiselies.
2.The program or service requires specialized knowledge, resources,and/or equipment that is not considered part of the municipality’s
introductory and developmental approach to program provision.
3.The program or service meets a required need of the residents andcost-sharing of space, and the partnership provides cost efficiency toboth parties.
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Scenario Conditions
Seeking Out & Implementing Strong Partnerships:
(see also Appendix F: Types of Partnerships and
Approaches to Evaluation)
1.There is an identified need for the service.
2.The terms and conditions are clear as to what service needs to beprovided and when and how the service provider will intersect withthe municipal staff.
3.There are labour conditions that allow open procurement of theservice.
4.A comparison is developed as to which provider will deliver the
service most effectively – the municipality or the other provider(s).
5.A thorough investigation of past performance in partnership withother municipalities is undertaken.
6.The merits outweigh the current service delivery model. Publicengagement is sought where appropriate.
7.A contract is developed with the successful third-party providercomplete with detailed performance expectations, legislativecompliance, quality assurance, levels of service, targets, and
performance.
A regularly scheduled evaluation of the third-party arrangements and other performance
metrics (e.g., participant satisfaction levels) is an essential element in continually providing quality programs and services through partnerships.
Recommendations – Sustaining Service Delivery
71. Provide targeted leadership courses in aquatics, programs, and camps untilappropriate staffing levels are achieved. Reach out to area school boards to assistin this endeavour.
72. Establish strategies to assist not-for-profit community groups in the recruitment,training, and retention of volunteers to support community-led recreation andsport programming.
73. Create objectives and strategies to enhance community capacity and increaseaccess to recreation and parks services for residents through an expandedcommunity development model.
74. Regularly review agreements with partners to ensure an appropriate andsustainable distribution of operational and financial responsibilities.
75. Identify opportunities to enhance and grow community partnerships thatincrease the range of recreation, parks, sport, and community opportunities in
support of future population growth.
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8.3 Expanding Programs and Services in a Growing Community
The City’s recent focus has been on recovering from the lower program, service, and staffing levels experienced during the pandemic. Staffing shortages in some areas have created challenges in offering a robust range of choices for all age groups. As a result,
the City has made targeted changes to schedules to ensure the efficient use of staff and
resources.
The following table illustrates a comparison of pre-pandemic (2019) and post-pandemic (2023) data for selected registered and drop-in opportunities.
Registration Levels of Selected Recreation Programs and Services 2019 and 2023
Year 2019 2019 2023 2023
Program Type Registration Fill Rate Registration Fill Rate
Recreation Programs:
Summer Camps 3,031 88% 3,168 97%
March Break 208 65% 250 99%
Active Programs 1,734 49% 2,138 74%
Creative 248 61% 370 77%
General Interest 1,613 43% 2,212 49%
Total - Recreation 6,834 60% 8,138 71%
Drop-in Activities:
Fitness Classes 774 65% 671 78%
Health Club 593 119% 776 182%
Youth 6,347 59% 5,041 46%
Older Adult N/A N/A 425 49%
Rouge Hill SC 110 55% 73 36%
South Pickering Seniors Club 784 52% 755 50%
Pickering Lawn Bowling 163 81% 145 72%
Total – Drop-in 8,608 61% 7,741 52%
Aquatics Programs:
Pre-School 3,177 93% 2,938 93%
Children 3,827 85% 4,515 89%
Youth 505 79% 354 79%
Adult 1,414 93% 742 93%
Total – Aquatics 8,923 89% 8,549 90%
Family/Public Swim 68,981 31% 77,890 42%
Source: City of Pickering, 2024
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Overall, 2023 participation levels in registered programs have surpassed 2019 (pre-pandemic) levels by 19%. Camps have recovered to the pre-pandemic levels and have a high fill rate of 97% (percent of registrants as compared to the capacity); a high fill rate
would indicate that there is a waitlist for summer camps.
Participation in drop-in aquatic programs has increased by 11% since 2019, supporting a national trend in the popularity of casual use of facilities. The Health Club is particularly oversubscribed. Staff monitor the number of active members to ensure that there is not overcrowding of changerooms and fitness spaces during peak hours.
Sustaining the Swim to Survive Program
According to the Lifesaving Society (Ontario Branch), there was one fatal drowning for every four non-fatal drownings in 2023. There are typically 150 fatal drownings in Ontario each year; most occur in open water and are preventable. Children and youth under 20 years of age make up the highest number of emergency visits due to non-fatal
drownings, with males accounting for two-thirds of non-fatal drownings.
The most important preventative measure for drowning centres on education and learning to survive in and around water. The Lifesaving Society (Ontario Branch) oversees the Swim to Survive program along with grant funding to assist municipalities. Often the program is offered through the schools and some municipalities offer family-
oriented opportunities. Pickering has traditionally offered the Swim to Survive Program
but has recently declined due to the lack of sustainable funding. This program is critical in a diverse community that has its southern boundary as Lake Ontario. Going forward, it is important that the City play its part in drowning prevention by seeking out sustainable funding sources for this program, including sponsorships and/or tax-based
funding if necessary.
Planning for Aquatic, Fitness, and Programs
With anticipated population growth, the City should begin to plan for future program and service requirements in programs, aquatics, and fitness, all of which will be substantially expanded through the new Seaton Recreation Complex & Library. By identifying current
penetration rate (the number of unique clients in programs and services), the City can
establish a baseline figure of participants to measure against. Data should also indicate how many programs and services each unique client participates in each year. With this information, the City can anticipate future program and service needs within neighbourhoods and service areas and plan accordingly. Development of a program
plan will allow staff to recruit and train leaders, and anticipate budget and resourcing
requirements.
Quality Assurance in the Delivery of Services
The City of Pickering embraces industry standards and quality assurance programs in the delivery of programs and services. Programs that have been utilized to varying
degrees include HIGH FIVE in supporting children’s development in recreation, Youth
Friendly Communities (although the criteria are currently under review), and Active
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Aging through Parks and Recreation Ontario. Further, the Aquatic Safety Management Program is a worthwhile undertaking in ensuring that aquatic policies and operations meet the highest standard. These quality assurance tools should continue to be utilized
to ensure that the quality of recreation services is maintained and can be regularly
audited for improvements.
Fill Rate Targets for Programs and Services
Municipal recreation service providers are especially cognisant of maximizing the use of public spaces for appropriate purposes and ensuring that programs and services are
filled to near capacity. This work involves scheduling programs during times that each
age group can participate.
A common goal is to fill program spaces to 85% of capacity, which helps to ensure that programs remain financially sustainable. Admittedly, ensuring that a public swimming pool is used to capacity during a public swim makes swimming less enjoyable, thus the
capacity of program spaces should be designed to accommodate the respective activity.
An 85% fill rate in programs is appropriate and should be a benchmark for the department going forward.
Promoting Physical Activity
Canada’s Physical Activity Report produced by ParticipACTION continues to identify
Canadians as receiving a failing grade to sustain adequate health outcomes through
physical activity.
Canada’s 24-Hour Movement Guidelines have replaced Canada’s Physical Activity Guidelines. These guidelines were introduced in 2020 and depict the amount of time various age groups should “Sweat, Step, Sleep and Sit” in a 24-hour period. This is
viewed as more a helpful tool for Canadians as the new guidelines speak to the amount
of recreational screen time that is appropriate from a health perspective each day. The table below highlights daily movement guidelines for children and youth between the ages of 5 and 17. Posting these movement guidelines for each age group in appropriate community spaces will continue to remind residents to become more active and limit
sedentary behaviours.
Table 36: Canada's 24-Hour Movement Guidelines for Children and Youth
Activity Time per Day
Sweat 60 minutes of moderate to vigorous physical activity
Step Several hours of moderate physical activity
Sleep 9 to 11 hours for 5 to 13-year-olds
Sit 8 to 10 hours for 14 to 17-year-olds
Source: Canadian Society for Exercise Physiology (csepguidelines.ca)
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Working Inter-Municipally in the Allocation of Facilities
Many facilities and organizations in Pickering attract participants from outside the community, particularly the neighbouring town of Ajax which forms part of many regional
West Durham Region sport alliances. As a result, many groups rent fields and facilities
in both jurisdictions; this was a key finding of the City of Pickering 2024 Arena Strategy. Coordination is necessary to ensure that groups are afforded equitable and appropriate access and that municipal facilities are maximized. To this end, it is important that allocation formulas are similar and based on standard guiding principles, allowing
eligible groups to expand their services without being unduly impacted by historical
allocations; this concern was expressed by multiple groups during the consultation for this plan.
Recommendations – Expanding Programs and Services in a Growing Community
76. Seek sponsorships and sustainable funding to reintroduce the Swim to Survive
program for students and families (once staffing shortages are addressed). Place
additional emphasis on the need for children and families to be safe in and aroundwater.
77. Develop an Aquatic, Fitness and Program Strategy that reflects current andfuture programming needs to identify the scope of future program needs and to
maximize community resources.
78. Implement quality assurance programs in the delivery of service in recreation toreflect the quality and safe programming for all age groups. Some examplesinclude: HIGH FIVE (Principles of Healthy Child Development and Active Aging),Youth Friendly Communities, Lifesaving Society Aquatic Safety Management
program, etc.
79. Work to achieve an 85% fill rate in all recreation services and programs(calculated as participation divided by capacity).
80. Promote Canada’s 24-Hour Movement Guidelines to encourage greaterphysical activity levels (frequency, intensity, and duration) in Pickering residents.
81. Work with the Town of Ajax to develop common principles in the allocation ofcommunity facilities that are commonly used by organizations that operateacross the West Durham area.
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8.4 Increasing Participation of Diverse and Under-represented Residents
Confirming which populations are equity-deserving in Pickering is the first step in building an effective outreach initiative. The following table identifies key populations that are traditionally under-represented in recreational activities based on Statistics Canada and other leading research.
Table 37: Estimates of Equity-Deserving Groups in Pickering
Diverse Population Group
Percentage of Pickering’s Population
Approximate Population (out of 103,000)
2SLGBTQ+** 4% (estimated*) 4,800
Indigenous Identity 1% 1,400
Visible Minorities - Racialized Populations 44% 45,300
Girls and Women 51% 52,500
Persons Experiencing Low Income (Lower Income measure – After Tax) 5% 5,500
Persons with Disabilities 15 to 22% (estimated*) 15,500 to 22,700
*Estimates based on Statistics Canada data, various sources **Two-Spirit, lesbian, gay, bisexual, transgender, queer, intersex, and additional people who
identify as part of sexual and gender diverse communities
The most important principle in developing meaningful programs and services in a
diverse community is to engage the people who may be participating. Practitioners cannot assume that they know what activity preferences exists nor current barriers for any equity-deserving population. The identification of equity-deserving populations allows the City to inventory and assess outreach and inclusionary policies and practices
that are in place and that many be missing. Outreach to these populations is critical in
enabling greater representation in recreation and sport activities.
Revising the Access to Recreation Policy
The Access to Recreation Policy in Pickering allows people experiencing low income to receive subsidies to participate in a program of their choice. Participants qualify by
being on income support through the government or living at the Lower Income Cut-off This policy provided over 600 Pickering residents with subsidized recreation in 2022. Pickering also provides many free and low-cost opportunities for residents to be active regardless of their income level. During an undertaking to develop a fair-minded use fee policy, residents receiving subsidies provided feedback as to how this policy might
improve, including suggestions for providing free programs close to where residents
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live, ensuring sustainable funding levels, and ensuring equity throughout the subsidy application process.
Addressing Gender Equity in Sport and Recreation
Over 90% of girls and women believe that sport benefits their physical and mental
health, but less than 50% continue to participate once they have reached puberty21. The Federal government has declared that Canada will achieve gender equity in sport by 203522.
Canadian Women & Sport (CWS, a non-governmental organization) supports and
enables girls, women, and gender diverse people in pursuing sport and active lifestyles,
and keeps women actively engaged in building community capacity. CWS’ priority and focus is to develop and support welcoming environments and sustainable models where women are trained to lead and promote active opportunities in concert with community partners such as municipalities, universities, and not-for-profit organizations. They have
many resources that are readily available to audit policies and practices and help to
build capacity within community organizations (e.g., Gender Equity Temperature Check, Game On, etc.).
Female participation in community-driven sport and recreation should be identified as a priority in Pickering as it has the potential to engage one-half of the population and
include equity-deserving populations. Female and gender diverse participation in sport
and recreation warrants assessment and the development of a multi-year plan where inequities exist.
Pickering’s Equity, Diversity, and Inclusion Strategy
The City of Pickering has developed its own Equity, Diversity, and Inclusion (EDI)
Strategy. Key advances are anticipated in education and awareness, structure and
resources, community engagement, integration into policies and practices, and measurement. Specific initiatives that are relevant to the delivery of recreation and parks include:
a)embedding the principles of EDI into the organizational culture;
b)ensuring that there is diverse representation at all levels of staff and within the
volunteer core;c)training on the EDI Strategy and the development of a training curriculum for full-time staff, part-time staff, and volunteers;d)developing a practical guide/handbook for staff to provide services with an equity
lens (see next subsection on creating and equity lens toolkit), including terms that
are acceptable;
21 Canadian Women & Sport and Canadian Tire Jumpstart Charities. Rally Report. 2022.
https://womenandsport.ca/rally-report-2022
22 Government of Canada. The Government of Canada Is Taking Concrete Steps to Achieve Gender Equity in All Levels of Sport. https://www.canada.ca/en/canadian-heritage/news/2019/03/the-government-of-canada-is-taking-concrete-steps-to-achieve-gender-equity-in-all-levels-of-sport.html
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e)creating dedicated spaces for prayer in community facilities;f)developing performance metrics to assist in evidenced-based decision-makingsurrounding EDI;
g) reviewing all policies, operating manuals, and standard operating procedures
with an EDI lens.
Creating an Equity Lens Toolkit
During the staff engagement in developing this plan, participants felt strongly that staffing and program offerings must reflect the diverse needs of the community. It was
indicated that many efforts have been made to discuss needs with diverse populations.
Modifications have been assessed and evaluated with participant's input and this process will continue to continually embrace service excellence. Staff identified the need for a toolkit to enable proactive action at the local level.
The municipalities of Oshawa, Oakville, and Brampton are examples of recreation
departments that have adopted and refined resources to assist staff and volunteers
provide equitable and inclusive programs and services. It is anticipated that Pickering’s Equity, Diversity, and Inclusion Plan will set about to achieve developing equity and inclusion tools and a lens for staff and volunteers. The aforementioned communities have adopted Equity and Inclusion Lens Guidelines, the concept for which was
originally developed through the Non-Profit Association of Oregon. The goal of the
guidelines is to ensure that staff and volunteers are aware of promising practices and can act with the right tools and thought processes.
The guidelines prompt staff to:
•Consider their own diversity;
•Check their assumptions;
•Ask about inclusion;
•Apply this knowledge to their own work; and
•Be a change agent by taking action.
The Equity and Inclusion Lens Guidelines provide checklists as staff undertake planning
and policy work, plan projects, strengthen communications, and recruit and lead staff. This resource would be an excellent starting point for Pickering to develop a toolkit that meets the needs of staff and residents.
One area where this lens can be applied is through recognition of Indigenous Peoples and their stories. Several recent national-level reports speak to the role that Canadians
have in reconciling with Indigenous Peoples over our shared history. All communities have a role to play in recognizing the land that Indigenous Peoples previously lived on and in being inclusive of this population. In turn, many recreation, parks, and culture organizations are emphasizing the role of Indigenous Peoples through education, arts, sports, parks amenities and interpretation. Meaningful local supports can only be
determined through open discussions with local Indigenous Peoples and organizations.
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Some resources that can be utilized at the local level to ensure that staff and volunteers are including the voice of Indigenous Peoples include:
•Aboriginal Sport Circle: The Aboriginal Sport Circle is a not-for-profit organization
that is designated as Canada's governing body and voice for Aboriginal sportthroughout the country. Each Province and Territory is represented and is anexcellent resource for recreation providers. It advocates for the Aboriginalcommunity to engage in healthy and active lifestyles. The Regional Coordinators
in Ontario work to better engage the community and offer grants to fund
programs and activities through the Power to Play Program.
•IndigenACTION: The Assembly of First Nations is a national organizationrepresenting First Nations peoples in Canada. The group has developed an
IndigenACTION Strategy which serves to develop partnerships with communitylevel sport and recreation leaders to ensure that First Nations youth can livehealthier lifestyles and overall well-being through recreation and sport.
Providing Safe and Welcoming Public Spaces
The Ontario Council of Agencies Serving Immigrants developed the Positive Spaces
Initiative through Citizen and Immigration Canada to denote public spaces that are safe for and welcoming to the 2SLGBTQ+ community. Signage including the Pride flag in the graphic denotes that the space is positive for this population.
Recommendations – Increasing Participation of Diverse and Under-represented Residents
82. Refine and expand the Access to Recreation Policy to include stabilized funding
based on need, equity in the registration process, and other findings based on
input from recipients.
83. Conduct an audit of municipally-supported recreation and sport opportunitiesavailable to all genders and work to increase participation by girls, women, andpersons identifying as female or gender diverse.
84. Consider the recommendations of the City’s Equity, Diversity, and InclusionStrategy through the implementation of recreation and parks services includingthose related to key principles, representation, training, space design,guide/handbook, and performance metrics.
85. Develop a Community Engagement Plan to welcome and involve all residents in
recreation and parks opportunities.
86. Work with the Aboriginal Sport Circle and IndigenACTION to discuss ways ofcollaborating with Indigenous People to reflect sport and recreation needs inPickering.
87. Ensure that all public spaces are safe and welcoming spaces for staff and users
as outlined in the Safe Spaces Canada criteria.
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8.5 Supporting a High-Performing Staff Team
There is a strong commitment in Pickering to innovate service delivery, expand community engagement, and enhance satisfaction levels. To this end, key initiatives that staff should undertake internally to heighten the ability of staff and volunteers to be
even better skilled and prepared to respond to changes within the community have
been identified below.
Confirming Levels of Service
In a community that is increasing in population and recreation and sport demands, it is important to confirm and document the levels of service that are provided to the public
and the resources that it takes to provide them. In this way, future requirements for
resourcing and staffing can be determined for Council approval well in advance of implementation. For instance, the operating impacts of capital projects can be determined by the services that will be provided within new or improved spaces and the operating impacts can be approved at the time that the capital allocation is approved.
Many levels of service standards are in place, but likely many are not articulated and
approved by Council. The process to articulate levels of service is shown below.
Figure 16: Framework for Establishing Levels of Service
Articulate what levels of service (LOS) exist for each program/ service and quantify the frequency per year they are completed
Identify the ideal conditions and efficiencies in which they are offered (new technologies, patnerships etc.)
Identify the current resources (staff and equipment) that are needed to produce the LOS
Identify the departmental and corporate supports that assist with offering the service.
Review LOS every other year to capture greater efficiencies and changes.
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Developing a Ten-Year Staffing Plan
Once the levels of service have been developed and approved by Council, the process to develop a ten-year staffing plan can begin. This plan will serve to plan the number
and type of staff in the context of additional facilities and services to respond to a
growing population. The plan should also address average levels of staff turnover, pending and potential retirements, succession planning, and ensuring that the staff team reflects the community that they serve.
In the meantime, organizational structural guidelines can be used to determine if the
current organizational structure is designed with equity and consistency. Utilizing the
following guidelines, the City can assess its structure on an annual basis or as staff changes occur in order to seek opportunities for efficiencies.
Typical guidelines used in a municipal organizational system include:
a)Organizational levels – a maximum number of staff levels (ideally less than 5)
between the Director and the public should be established
b)Functions and customer focus – each staff unit should be designed aroundcommon customers and like functions
c)Equitable distribution of workloads – where possible, positions should bedesigned that have equitable accountabilities and responsibilities
d)Reduction of duplication of efforts – positions with overlapping responsibilities
(booking, allocating, etc.) should be reviewed for potential efficiencies.
e)Span of control – each management/supervisory level could have between fourand seven direct reports
f)Sole contributors – there should be few if any one-on-one reporting
relationships unless the direct report is a sole contributor to the organization.
Supporting Training and Development
A standardized training and development plan ensures that all staff and volunteers have the skills and competencies to provide a high level of service. An inventory of skills needed per position type is a required undertaking. Common requirements such as
customer service standards, inclusion, diversity, equity and accessibility, and
sustainability in the delivery of services are all common competencies and can be packaged and offered online, in-person, or a combination thereof. More specialized training such as evacuation procedures per facility type, and emergency response measures can be offered through the various disciplines. Ensuring that each staff
person can provide an exceptional level of service and is aware of refined and
innovative approaches will enable the City to continue to effectively respond to needs.
Setting Performance Targets and Measures
Recreation staff collect participation, utilization, and service satisfaction data to analyze current service delivery levels and to measure performance against the previous year's
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results. This is completed to demonstrate that there has been movement in addressing key goals and initiatives and that residents are well satisfied with service and program provision. Annual attendance and registration statistics are captured and shared with
staff to allow improved planning for the next session and accommodate pent-up
demands. Annual reporting establishes transparency in the operations and demonstrates to the public that there is excellent value in the investment of tax dollars.
Recommendations – Supporting a High-Performing Staff Team
88.Articulate and seek Council approval for all recreation and parks levels ofservice in preparation for the need for expanded growth-related services. This
work will entail working with a third-party to identify all services, how often and
the standards to which they are delivered, resources required, and potentialefficiencies.
89.Develop a Ten-Year Staffing Plan that reflects the approved levels of serviceand changes in service requirements (e.g., staffing levels, office space, etc.) due
to the growth of the population.
90.Develop a Staff Training and Development Continuum that identifies thenecessary knowledge, skills, and competencies for each job type. This exerciseshould document current trends and developments that will keep staff performingat a high level and improve readiness for succession planning.
91.Refine existing performance metrics and prepare a concise annual reportcard to reflect changes in participation rates, service delivery, volunteerism,utilization of public spaces, satisfaction levels, and other outcomes fromrecreation and parks participation.
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9.Implementation
Active implementation of the Recreation & Parks – Ten Year Plan is fundamental to its success. This requires coordinated efforts and a commitment from Council, staff, user
groups, and the public, as well as a variety of funding options to implement certain aspects of the Plan. This section provides guidance on the Plan’s implementation, including a summary of all recommendations and their intended timing.
9.1 Plan Evaluation and Monitoring
The City should regularly review, assess, and update the recommendations of this Plan to ensure that they continue to reflect local conditions and that they are responsive to
the changing needs of the community. This will require monitoring population data and
growth patterns, tracking activity trends and user satisfaction levels, coordinating with community organizations and the public, reporting on progress, and undertaking a comprehensive ten-year update to the Plan. Through these strategies – or as a result of other internal or external factors – adjustment of resource allocations and priorities
identified in this plan may be required.
The Plan should be reviewed annually as part of the City’s budget cycle. The following steps may be used to conduct an annual review of the Ten Year Plan:
a)review of the past year (recommendations implemented, capital projectsundertaken, consideration of new and existing initiatives, changes in participation
levels, emerging issues and needs, etc.);
b)identification of issues impacting the coming year (anticipated financial andoperational constraints, emerging opportunities, etc.);
c) cursory review of the plan for direction regarding its recommendations;
d)preparation of a staff report to indicate prioritization of short-term projects and
determination of which projects should be implemented in the following year
based on criteria established by staff (e.g., financial limitations, community input,partnership/funding potential, etc.);
e)communication to staff and Council regarding the status of projects, criteria usedto prioritize projects and projects to be implemented in the following year; and
f)budget requests/revisions as necessary.
Lastly, additional data collection and evaluation has been recommended to inform performance measures and targets. Monitoring the efficiency and effectiveness of service delivery and facility management will be an important part of this plan moving forward, as will regular reports to the public on progress and implementation priorities.
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Recommendations – Plan Evaluation and Monitoring
92.Regularly monitor progress of the Ten Year Plan, including tracking of growthand demographic characteristics, activity patterns, facility usage, participationlevels, trends, and completed recommendations.
93.Ensure that planning for major capital projects includes meaningful communityengagement and feasibility studies that validate building program and servicerequirements and are aligned with community needs, partnership opportunities,and financial capabilities.
94.Develop a communications plan following approval of the Ten Year Plan to
create awareness about its key messages and recommendations amongst
residents and stakeholders. Implement a system for the regular reporting of theplan, including an annual report card to the community.
95.Establish annual work plans to identify recommendations requiringimplementation within the coming year. Work plans should identify departmental
leads, partners, funding requirements and sources, etc.
96.Undertake a comprehensive review and update of the Ten Year Plan to beginno later than 2033. Timing may be accelerated based on the pace ofimplementation and changes within the community.
9.2 Financial Considerations
The Ten Year Plan calls for continued financial investment and outlines a series of planning priorities for the provision of new and upgraded recreation and parks infrastructure for the next ten years. The amount of funding required to support some or all major capital recreation projects will place pressure on the City’s debt capacity. The
City has limited resources and cannot afford to do everything that the community
desires; underscoring the importance for undertaking the plan in the first place.
Although Pickering may experience various challenges in providing sufficient resources to achieve the plan’s recommendations, it is expected that the City will make every effort to implement these strategies through appropriate means. Pickering’s recreation
and parks capital projects are primarily funded from development charges, community
benefit charges, asset management levy (tax-base) and other capital reserves, special reserves (e.g., gaming revenues, municipal accommodation tax, etc.), debt, and outside sources such as senior government grants and third-party contributions.
The City’s annual budget and long-term forecast contains considerable detail regarding
capital projects to be undertaken during the next ten-year period (subject to change
based on needs/priorities, funding availability, etc.). This Ten Year Plan will have an influence on the projects that are included in the town’s long-term capital forecast and should be used as a resource in developing secondary plans and related studies. Through implementation of the plan, the City will take into consideration available
capital and operating funding via available sources to identify potential budget shortfalls
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or overruns and areas for adjustment. On an annual basis, the City should reconcile the recommendations with its fiscal capacity and focus on the highest priority items.
The City will lean on its creativity and leadership to enable full implementation of this
plan. It is vital that growth-related funding sources are maximized. Financial processes
and practices will support the maximization of available funds and be supplemented by other approaches, where possible. Approaches that are financially sustainable will be encouraged, such as partnerships that leverage assets and resources to provide the best value to residents, building cost-effective multi-use facilities rather than those
designed for a single use, seeking senior government grants and fundraising, etc. The
City routinely seeks grants, sponsorships, naming rights and advertising revenue as a means to offset the costs of services.
Recommendations – Financial Considerations
97.Use this Ten Year Plan as a resource in establishing the City’s annual budgetdocuments, capital forecasts, development and community benefits charges
studies, secondary plans, and other related studies.
98.Where appropriate and consistent with City policies and priorities, consideralternative funding and cost-sharing approaches such as (but not limited to)fundraising, grants, private-public partnerships, sponsorships, surcharges, capitalreserve contributions, and various forms of collaboration to provide the best
value to residents.
99.Assess and ensure that operating budget implications are identified andappropriately resourced prior to approving major capital projects.
100.Conduct feasibility studies and business plans (with input from the public)prior to undertaking major capital projects to ensure that projects are aligned with
community needs, partnership opportunities, and financial capabilities.
101.Foster effective partnerships and co-location opportunities with landownersand public agencies (e.g., public libraries, schools, etc.) that support theimprovement, provision, and expansion of recreation, parks, and communityfacilities that address demonstrated needs.
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9.3 Implementation Strategy
Throughout this Ten Year Plan, recommendations have been identified at the end of each section. This is not intended to be a definitive list of recommendations as ongoing capital projects/repairs, operating expenditures, and other initiatives outside the scope
of this plan may be identified and prioritized by the City on an ongoing basis. By
approving this Ten Year Plan as a guiding document, the City is not bound to implementing every recommendation; rather, this plan provides guidance on community priorities and sets a general course for meeting community needs as they are presently defined.
Priority is generally synonymous with timing – the higher the priority, the sooner the
recommendation should be implemented. All recommendations within this plan are important and, if properly implemented, will provide the community with enhanced recreation and parks services in Pickering. The priority/timing of recommendations is organized into the following three categories:
•Short Term priority (1-3 years)
•Medium Term priority (4-6 years)
•Long Term priority (7-10+ years)
The proposed priority/timing of each recommendation has been determined based on an assessment of need, as identified throughout the planning process (including public consultation, trends and demographic variables, assessment of parks, facilities, services, etc.), and is based on current and anticipated circumstances. Budget
pressures, changes in participation rates or demographics, availability of resources, and
other factors may impact the implementation of these recommendations. The pursuit of external funding opportunities and partnership opportunities may also assist in accelerating implementation.
The following tables contain the recommendations in the order in which they are
presented in the body of the plan. Where applicable, estimated capital costs are
articulated for each recommendation, which are based on published budget figures and/or industry norms. Costs are shown in 2024 dollar figures; however, inflation is at its highest level in decades, and all costs identified in this plan should be confirmed though further study.
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Table 38: Indoor Recreation Facilities Recommendations
# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
1.As a high priority, continue to proceed with the timelydevelopment of the Seaton Recreation Complex &Library. At minimum, this facility should be designed toinclude a 25 metre 6-8 lane rectangular pool andseparate warm water leisure pool, fitness centre andstudios, full size gymnasium, walking track, multi-purpose spaces, two arena pads, and library.
Design and construction costs included in 2024 budget and long-term forecast ($243 million).
2.Prior to undertaking significant capital renewal projects,initiate planning for the major long-term revitalizationof the Chestnut Hill Developments RecreationComplex as supported by the City’s Facility RenewalStudy. The assessment should consider factors such aspublic input, asset management, facility and programneeds, related initiatives, site and partnershipopportunities, potential funding sources, and more.
Costs to be determined through future study.
3.Seek to construct the proposed Seniors & YouthCentre in Pickering’s City Centre within the ten-year
horizon of this plan (prior to 2034). Once open, the EastShore Community Centre should be closed anddeclared surplus, with programming transferred to the
new facility.
Design and construction
costs estimated at $56.3 million.
4.Prepare a business case for the expansion of youthprogramming and space within the Chestnut HillDevelopments Recreation Complex. This should be
viewed as an interim measure prior to opening theSeniors & Youth Centre and should be implementedthrough the repurposing of tenant spaces and/or under-
utilized areas (not a physical expansion to the building).
Staff-led (business plan). Costs to be determined through future study.
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# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
5.As part of the next Ten Year Plan (around 2034), initiate
high-level planning for the development of a secondrecreation facility (Thompson’s Corners communitycentre) within the Seaton community on lands owned by
the City (east of Brock Road, south of Highway 407).
Consultant: $100,000 for needs and feasibility study.
6.Through the Northeast Secondary Plan process,designate land for community facilities suitable for thedevelopment of a future recreation complex and library.Secondary planning process is ongoing.
7.Prior to undertaking significant investment in existingcommunity halls (e.g., West Shore Community Centre,Brougham Hall, etc.), prepare a study of options thatexamines local needs, capacity within area facilities, andlong-term requirements. The assessment should beused to guide options, including sale, third-party-lease,and/or reinvestment. Closure and sale of underusedhalls that require significant investment is possible,particularly where these functions can beaccommodated within a nearby facility. New community
halls should be discouraged.
Staff-led / best practice. Reports may be prepared on an as-needed basis.
8.As a general principle, design indoor recreationfacilities to be flexible, accessible, multi-use (non-dedicated space, where possible), inclusive, and age-friendly community hubs. Locate these sites in highlyvisible locations with strong pedestrian, cycling, andtransit connections for convenient access. Considermodels co-located with libraries and other communityuses. Involve the community and stakeholders in thefacility design process.
Staff-led / best practice.
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# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
X Arena Facilities – Recommendations for arena
provision and investment are contained within the 2024Arena Strategy (under separate cover).See 2024 Arena Strategy.
9. Provide multi-tank indoor aquatic centres within allnew recreation complexes. A 25-metre tank with 6 to 8lanes and a separate warm water leisure pool arerecommended as part of the planned SeatonRecreation Complex & Library.
Costs included in facility-specific budgets.
10. Prioritize the revitalization of the Chestnut HillDevelopments Recreation Complex indoor aquaticcentre as part of the proposed facility revitalizationstrategy.
$5 million estimate contained within long-term capital forecast; to be confirmed through future study.
11. Undertake a study to examine future programming
needs and potential capital replacement of theDunbarton Indoor Pool. This study should consider theneed for this facility to remain operational during anyextended shutdown of the Chestnut Hill DevelopmentsRecreation Complex and should be completed followinga minimum of one year of the Seaton RecreationComplex & Library being fully operational.
May be staff-led or require outside services ($50,000).
12. Provide gymnasiums within all new and redevelopedrecreation complexes (e.g., Seaton, etc.) and considertheir provision within appropriate community centres
(e.g., Seniors & Youth Centre, etc.). A triple gymnasium(FIBA regulation) is recommended as part of the SeatonRecreation Complex & Library.
Costs included in facility-
specific budgets.
X - The Arena Strategy is comprised of eight seperate recommendations
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# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
13. Continue to pursue immediate options to accommodateindoor pickleball activities with ten indoor Pickleball Courts, including the Pickering Soccer Centre. An additional five courts will be provided at
the Seaton Recreation Complex & Library (anticipated opening 2028/29) meeting the service provision of one court per 10,000 residents.
Costs to be determined based on selected option.
14. Where additional access is required, expandagreements with local school boards to offerprogramming within school gymnasiums and othercommunity spaces within Seaton and future growth
areas.
Staff-led / best practice.
15. Provide fitness centres and studios within all new andredeveloped recreation complexes (including the SeatonRecreation Complex & Library) to support the delivery ofhealth and wellness programming. Consider theprovision of indoor walking tracks (free public access)within new recreation facilities, where appropriate.
Costs included in facility-specific budgets.
16. Based on a monitoring period that has not yieldedsatisfactory improvements, prepare a business case torepurpose one racquetball court at the CHDRC forother in-demand uses (e.g., group fitness space, etc.)and seek out additional community input on the matter.
Staff-led. Costs to be determined through future study.
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17. Consideration may be given to relocating the ChestnutHill Developments Recreation Complex indoortennis courts to another accessible location withinPickering in the longer-term, possibly through an air-
supported dome. This is a matter that may be more fullyexamined through the recommended recreation complexfacility revitalization study, the City Centre project, and/or
planning of the future parks and recreation facility sites.
Costs and implementation strategies to be
determined through future study.
18. Encourage wider community access to the PickeringSoccer Centre field by working with Pickering FC tocreate an allocation framework and/or scheduling
options that provide other youth-based organizationswith access to the turf field within prime, shoulder, andnon-prime times.
Staff-led, in cooperation
with Pickering FC.
19. Monitor the demand for indoor turf facilities andexamine the potential to develop a second indoor turffacility beyond the timeframe of this Ten-Year Plan.Consider as part of Ten Year Plan update.
20. Adopt a partnership framework to evaluate andrespond to major capital proposals from communityorganizations, with consideration given to overallmunicipal priorities and the City’s capacity to participatein such projects. A sample framework and criteria areidentified with this Ten Year Plan (see appendix).
Staff-led. Example provided in Appendix.
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Table 39: Outdoor Recreation and Park Facilities Recommendations
# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
21. Provide approximately 15 additional soccer and multi-use fields (unlit equivalents) over the next ten years toaddress growth-related needs. New fields may bedeveloped within community parks (with multiple fieldsper site) and appropriate neighbourhood park sites, aswell as in partnership with other land providers such asschools. Where possible, a focus should be placed onfull size fields (both lit and unlit) and artificial turf fields as
these provide greater capacity for community use. Inaddition to new fields in the Seaton community,opportunities should be sought to enhance field supplies
within existing parks (e.g., conversion of under-utilizedassets such as in Maple Ridge Park).
Costs included within park development budgets. Construction benchmarks are $200,000 to $500,000+
for an unlit field, $100,000 to $250,000 to add lights, and $1.0 to $2.0+ million to add artificial turf.
22. Through the annual permitting process, track thenumber of registrants using Pickering sports fields
(soccer, football baseball, cricket, etc.). At a minimum,data to be collected should include age (youth, adult,etc.) and residency (Pickering, other, etc.). This data willenable trend tracking, support future demand analysis,and inform allocation practices.
Staff-led / best practice.
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23. Provide approximately 6 additional ball diamonds (unlit
equivalents) over the next ten years to address growth-related needs. New fields should be developed withincommunity parks (with multiple fields per site where
possible), as well as in partnership with other landproviders where appropriate. These needs can belargely satisfied through planned development at Dave
Ryan Community Park (1 lit diamond) and futuredevelopment on the Greenwood Conservation lands(multiple lit diamonds), including consideration of bothhardball and softball needs.
Costs included within
park development budgets. Construction benchmarks are $200,000 to $500,000+ for an unlit field and $100,000 to $250,000 to
add lights.
24. Evaluate opportunities to repurpose surplus balldiamonds and to align the diamond supply anddistribution with demand. Some candidates for
conversion include under-utilized and/or under-sizeddiamonds at Maple Ridge Park, Lookout Point Park, andGreenwood Park.
Staff-led / best practice. Costs to be determined
based on selected option(s).
25. Include a regulation cricket field within the futureGreenwood Conservation lands or other suitablelocation capable of serving Seaton and surroundingarea. Consideration may be given to designing the pitch
as an overlay across two full-size soccer fields.
Costs included within park development budget. Construction benchmarks are
$400,000 to $800,000 per field.
26. Expand the number of public tennis courts (lit wherepossible) in growing communities through new courtdevelopment in Seaton (4 courts at 2 parks) and DuffinsHeights (2 courts at 1 park). Courts should be designedfor tennis only, but may be co-located with other sport
courts as part of a complex.
Costs included within park development budgets. Construction benchmarks are $400,000 for a 2-courts
complex.
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27. Consider the development of an outdoor tenniscomplex (4-5 courts) at the site of the community facilityplanned for Thompson’s Corners. The complex shouldbe operated by a community-based club under
agreement with the City, allowing for public accessduring specified hours and/or low use periods. Thepotential for an air-supported dome to allow for year-
round use of the courts (possibly as a long-termreplacement for the indoor courts at the Chestnut HillDevelopments Recreation Complex) may be consideredfurther through a business plan that examines demand,partnerships, financial performance, and related factors.
Construction benchmarks are $750,000 for a 4-
courts complex. Additional costs for a dome to be defined
through future business plan, including partnership potential.
28. Work with the local tennis club to confirm the long-termneed for the courts at Greenwood Park and consider
shifting use to new courts planned for Seaton, allowingthis space to be converted to other uses as defined by a
future redesign process for this park.
Staff-led. Costs to be determined based on selected option(s).
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29.Target the development of up to 19 new outdoorpickleball courts by 2034, with a focus on dedicatedcourts in appropriate locations. Projects should haveconsideration to the site evaluation and design criteria
identified in this plan. The City should continue to workwith pickleball organizations to monitor and assess theneed for additional dedicated court complexes over time.
Potential capital projects include:
a.developing six (6) dedicated courts at Diana,Princess of Wales Park, possibly operated inpartnership with a club;
b.a. developing four (4) dedicated courts at the site ofthe planned recreation facility in Thompson’s Corners, possibly operated in partnership with a club;
c.developing four (4) dedicated courts in the DaveRyan Community Park (P-123) in Seaton; and
d.consideration of painting lines on selected multi-usebasketball courts at locations such as BeechlawnPark (P-019, future) and selected neighbourhoodparks in Duffins Heights and Seaton (e.g., P-086,
etc.).
Costs included within
park development budgets. Construction benchmarks are $250,000 for two courts and $500,000 for six courts.
30. Develop approximately 13 additional outdoorbasketball courts by 2034 within growing communities(e.g., Seaton) and under-served areas (e.g., Liverpool,Kingston Road corridor) based on an 800-metre serviceradius. Half courts should generally be considered forneighbourhood parks (and appropriate village greens)
and full courts for community parks.
Costs included within park development budgets. Construction benchmarks are $100,000 to $150,000 per court.
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31. Continue with plans to construct 5 new splash pads /water play areas in Duffins Heights and the Seaton community by 2034; additional sites in Seaton and possibly City Centre will be required longer-term. Should
the City remove the splash pad at Beachfront Park, is being considered.
Costs included within park development
budgets. Construction benchmarks are $400,000 to $700,000 per location.
32. The provision of an outdoor pool would represent anew level of service for the City and the reconstruction ofthe pool at Petticoat Creek Conservation Park is notviewed as a priority within the scope of this Ten Year
Plan.
Although not recommended, the cost for pool design and construction is estimated
at $11.5 million (KPMG, 2023).
33. Continue with plans to include a refrigerated skatingrink/water feature within City Centre Park.Costs included within park development budget.
34. Consider the development of an appropriately-sizedcovered multi-use pad in Claremont Memorial Park tosupport extended use for floor sports (ball hockey,skating, etc.), camps, and events. The ice pad shouldnot be refrigerated.
Construction benchmarks are $1.0 to $1.25 million.
35. Reclassify skateboard parks as “all wheels parks” andintegrate this term into the City’s signage andpromotions.Staff-led.
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36.Expand the network of all wheels parks by:
a.replacing the aging community-level skate park atDiana, Princess of Wales Park at the proposedhydro corridor park to the north (pending approval
from Hydro One);
b.developing up to 4 new local skate spots in SouthPickering;
c.developing a community-level skate park in Seaton,possibly at the Seaton Recreation Complex & Library; and
d.developing up to 3 new local skate spots inSeaton, including one Dave Ryan Community Park.
Determination of locations and designs will require additional community consultation and site evaluation, guided by the criteria and classifications established in
the City’s Skateboard Park Strategy 2017.
Costs included within park development
budgets. Construction benchmarks are $350,000 to $750,000 per location.
37. Explore the potential for installing a pump track through
a future community or district park development project.
Staff-led. Construction
benchmarks are $200,000 to $400,000 per location.
38. Continue to install playgrounds within appropriate park
types in growth areas. At minimum, playgrounds shouldbe located within 800 metres of residential areas (less inintensified areas), unobstructed by major pedestrian
barriers such as valleys, highways, and railways.Playground design should give consideration to playvalue, variety in design, accessible features (focusing oncommunity park sites), and supporting amenities suchas pathways, seating, and shade.
Costs included within park development budgets. Construction
benchmarks are $150,000 to $500,000 per location, depending on scope of work.
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39. Integrate outdoor fitness equipment into appropriate
parks, focusing on destination parks (e.g., selectedcommunity and waterfront parks) and growingcommunities (using a 1-km radius to support equitable
distribution).
Costs included within park development budgets. Construction benchmarks are $75,000
to $150,000 per location.
40. Develop guidelines to support the design of designatedopen space exercise zones where the community canorganize fitness classes (yoga, tai chi, etc.).Staff-led.
41. Support the establishment of community gardens onappropriate municipal lands and as an option in new andredeveloped parks able to meet the site criteriacontained in the City’s Community Gardens Policy.Leverage partnerships with agencies and privatelandowners to ensure an equitable distribution acrossPickering (including one or more sites in Seaton).
Staff-led / best practice. Construction benchmarks are $100,000 to $250,000 per location.
42. Provide two (2) additional leash-free dog areas withinthe next ten years in response to community need andonly in cases where location criteria can be met.Evaluate options for establishing an off-leash dog area inSeaton and continue with plans to develop an off-leashpark in the proposed Hydro Corridor park (pendingapproval from Hydro One).
Costs included within park development budgets. Construction benchmarks are $100,000 to $200,000 per location.
43. Prepare an off-leash dog area policy to address thedynamics of providing, designing, and maintaining leash
free dog areas in higher density neighbourhoods.Staff-led.
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44. Work with the TRCA to enhance Petticoat CreekConservation Park as a signature park site for largeevents and festivals.
Costs will be dependent
on agreement and scope of improvements. Preliminary capital cost
estimate is $35.8 million (KPMG, 2023).
45. As a general principle, consider and evaluate eventhosting capabilities when developing and redevelopingcommunity and district parks, including the provision ofsupport infrastructure (e.g., parking, electrical service,water and wastewater services, washrooms, shade,
etc.).
Staff-led / best practice. Costs to be determined based on selected option(s).
46. Continue to place a high priority on the preservation andrestoration of waterfront parks and beaches thatsupport public access for residents and visitors.
Staff-led / best practice. Costs to be determined based on selected option(s).
47. Continue to monitor participation and trends inrecreation and sport activities accommodated throughthe parks system (including those delivered inpartnership with others) to inform future capital needsand strategies.
Staff-led / best practice.
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Table 40: Parkland Recommendations
# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
48. Modify and update the City’s parkland hierarchythrough the next Official Plan update. This includesdistinguishing between different types of parkland inMixed Use Areas and Urban/Rural Residential Areasand updating the policies for existing designations asappropriate. Additionally, it is recommended that twonew park categories (Urban Parks and Linear Parks) becreated to support the emerging Mixed Use Area
hierarchy. Consideration may also be given to renamingthe District Park (to “City-wide Park”) and expanding thedesignation to allow for the inclusion of larger properties
that support linear and passive recreation, such as city-wide events, environmental education, interpretation,and nature-related recreation.
To be considered through Official Plan Review.
49. Develop and maintain a comprehensive inventory
database of parks and open spaces (linked to GIS andasset management databases) for the purposes ofevaluation and planning.
Staff-led.
50. Adopt a minimum City-wide parkland provision targetof 1.5 hectares per 1,000 residents through to 2034. Thistarget (as well as defined targets for mixed use areas,new community areas, and established areas) should beused to inform the review of development applicationsand secondary plans for the next ten years. Wherepossible, parkland provision targets should be linked topopulation and/or housing units.
To be considered through Official Plan Review and development review processes.
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51. Prepare a parkland acquisition strategy to enhance
current and future community access to parks, withconsideration of alternative acquisition tools. Thestrategy should confirm priorities for land acquisition
(including opportunities to secure larger park blocks forcommunity-serving amenities) and a budget for theannual allocation of funds.
Consultant: $150,000 (may be combined with other corporate land
needs). Excludes cost for land acquisition.
52. Use the priority mapping in this plan to inform landacquisition and work with other municipal departments tosecure land and/or enhance programming in high priorityareas (informed by the proposed parkland acquisition
strategy).
Staff-led / best practice.
53. Strengthen collaboration with public agencies (e.g.,schools, local and other levels of government, utility andinfrastructure agencies, etc.) to facilitate communityaccess to parks, trails, and recreation spaces on non-municipally owned sites. Consider developing aframework to improve connections to (and programming
of) these spaces.
Staff-led.
54. Update the parkland dedication requirements andrelated policies within the City of Pickering’s OfficialPlan and Parkland Conveyance By-law to reflect thechanges enacted through the More Homes, Built Faster
Act (Bill 23) and related legislation, with furtherconsideration of the recommendations within this TenYear Plan. Consideration may also be given todeveloping a procedure establishing the guidelines andprocess for administering the Parkland Conveyance By-
law.
May be staff-led or require outside services. To be considered through Official Plan Review and related planning processes.
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55. Establish policies surrounding privately-owned publicspaces (POPs) and strata parks. While these spaceswill generally be discouraged, they may be countedtoward the parkland dedication requirement at the
discretion of the City (with strata parks being accepted ata discounted rate). Appropriate legal agreements mustbe established to address park design and construction
standards, public access, maintenance, etc. POPs arenot appropriate in locations outside of mixed use areas.
May be staff-led or
require outside services. To be considered through Official Plan Review and development review processes.
56. Establish clear location and development guidelinesdescribing what constitutes acceptable parkland
dedication from developers. These guidelines shouldconsider restrictions for encumbered lands, hazardslands, steep slopes and unstable lands, environmentally
protected lands, rights-of-way and easements,contaminated lands, etc. and be included within theOfficial Plan or parkland conveyance procedure.
May be staff-led or
require outside services. To be considered through Official Plan Review and
development review processes.
57. Adopt a “Parkland First” approach that prioritizes
parkland conveyance over cash-in-lieu of parkland andprivately-owned public spaces in order to addressparkland requirements.
To be considered through Official Plan Review and development review processes.
58. Consider updating the City’s Community BenefitsCharges Strategy and By-law to include theconsideration of parkland acquisition beyond theamounts available under the provisions of the PlanningAct.
Consultant-led through CBC Strategy Update.
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59. Utilize alternative financial tools and other parklandacquisition approaches beyond traditional landconveyance mechanisms as necessary to meet theCity’s parkland targets to 2034. The City is encouraged
to actively pursue direct purchase of land in priorityacquisition areas and unserviced land with futureparkland potential.
Staff-led / best practice.
Land costs to be determined on a site-specific basis.
60. Clearly articulate the criteria that will be used to evaluatethe acceptance of cash-in-lieu of parkland dedication.To be considered through Official Plan Review.
61. Prioritize spending parkland cash-in-lieu funds on landacquisition, rather than capital improvements in parks.Staff-led / best practice.
62. Institute a program to track the annual spending andallocation of cash-in-lieu funds in keeping withPlanning Act requirements (at least 60% of monies must
be spent or allocated at the beginning of each year) andto evaluate the performance of this Ten Year Plan.
Staff-led. Regulatory requirement.
63. Conduct an assessment of cash-in-lieu of parklandvaluation processes and fees, with the goal of
ensuring that cash-in-lieu of parkland rates are reflectiveof local market conditions.
May be staff-led or require outside services ($50,000).
64. As opportunities arise, evaluate the potential to secureand/or protect open space lands that are outside theparks system and that provide important connectionsbetween parks, trails, and other public areas, havingregard to the Official Plan and partner agency
requirements.
Staff-led / best practice. Land costs to be determined on a site-specific basis.
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65. Continue to maintain a commitment to universalaccessibility, safety, and comfort within the City’sparks and trails system by:
a.Regularly consulting with the City’s Accessibility
Advisory Committee and ensuring compliance withthe Accessibility for Ontarians with DisabilitiesAct (AODA), recognizing that some parks and trails
may include areas of natural terrain that are moredifficult to access.
b.Emphasizing the provision of amenities such aswashrooms, benches/seating areas, bike racks,and shade (structures, tree canopy, etc.) inappropriate park types to address the needs of allage groups.
c.Engaging qualified personnel to undertake a review
of all parks and trails using Crime PreventionThrough Environmental Design (CPTED)principles to identify safety concerns relative toaccess, sightlines, etc.
Staff-led / best practice. Additional costs can be
anticipated in order to implement AODA accessible public spaces standard, CPTED principles, and robust support amenities within parks.
66. Continue to provide a balance of active and passivespaces within the parks system to support all-seasonrecreation and sports, casual use and unstructured play,special events, and cultural activities.
Staff-led / best practice.
67. Continue to support outdoor education, stewardship,and climate change mitigation initiatives through theopen space system, such as tree plantings,naturalization efforts, community gardens,butterfly/pollinator parks, and adopt-a-park/trailprograms, in conjunction with community partners.
Staff-led / best practice. Additional costs can be
anticipated (to be determined through program development).
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68. Continue to initiate park redevelopment projects at key
sites requiring renewal and evaluate park sites within oradjacent to high density mixed use areas for longer-termredevelopment. Park redevelopment projects should be
identified in the City’s long-term capital plan and includeadditional public and stakeholder consultation.
May be staff-led or
require outside services for design (approximately $25,000 to $50,000 per
park for design, plus site-specific construction costs).
69. Continue to expand and connect the recreational trailnetwork. This includes planning trails within newcommunity areas and working with partners to leveragepublic sites (such as utility rights-of-ways and other
linear corridors) for trail use as appropriate.Improvements to the on-road cycling network should beguided by the City’s Integrated Transportation Master
Plan.
Staff-led. Additional costs can be anticipated (to be
identified on a project-specific basis).
70. Continue to enhance the trail network by installing andmaintaining safety and comfort features – such aslighting, signage, seating, etc. – in appropriate locations
and addressing the recommendations for a multi-usetrail design and safety audit, wayfinding study and pilotproject, and trails amenities plan within the City’s
Integrated Transportation Master Plan.
Staff-led. Additional costs can be anticipated (to be identified by Engineering Services on a project-specific basis).
Table 41: Recreation Service Delivery Recommendations
# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
71. Provide targeted leadership courses in aquatics,
programs, and camps until appropriate staffing levels areachieved. Reach out to area school boards to assist inthis endeavour.
Staff-led. There will be a
defined fiscal impact on foregone revenue for leadership training.
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72. Establish strategies to assist not-for-profit community
groups in the recruitment, training, and retention ofvolunteers to support community-led recreation andsport programming.
Staff-led. There may be added costs to develop
materials.
73. Create objectives and strategies to enhance communitycapacity and increase access to recreation and parksservices for residents through an expanded communitydevelopment model.
Staff-led. There may be added costs to develop materials and support groups.
74. Regularly review agreements with partners to ensurean appropriate and sustainable distribution of operationaland financial responsibilities.Staff-led.
75. Identify opportunities to enhance and grow communitypartnerships that increase the range of recreation,parks, sport, and community opportunities in support of
future population growth.
Staff-led. There may be
added costs to support groups.
76. Seek sponsorships and sustainable funding toreintroduce the Swim to Survive program for studentsand families (once staffing shortages are addressed).
Place additional emphasis on the need for children andfamilies to be safe in and around water.
Staff-led. Operating costs to be determined through
program development.
77. Develop an Aquatic, Fitness and Program Strategythat reflects current and future programming needs toidentify the scope of future program needs and tomaximize community resources.
Consultant: $50,000.
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78. Implement quality assurance programs in the delivery
of service in recreation to reflect the quality and safeprogramming for all age groups. Some examplesinclude: HIGH FIVE (Principles of Healthy Child
Development and Active Aging), Youth FriendlyCommunities, Lifesaving Society Aquatic SafetyManagement program, etc.
Staff-led. Operating costs to be determined through
program development.
79. Work to achieve an 85% fill rate in all recreationservices and programs (calculated as participationdivided by capacity).Staff-led.
80. Promote Canada’s 24-Hour Movement Guidelines toencourage greater physical activity levels (frequency,intensity, and duration) in Pickering residents.Staff-led. There may be added costs to promote.
81. Work with the Town of Ajax to develop commonprinciples in the allocation of community facilitiesthat are commonly used by organizations that operateacross the West Durham area.
Staff-led.
82. Refine and expand the Access to Recreation Policy to
include stabilized funding based on need, equity in theregistration process, and other findings based on inputfrom recipients.
Staff-led. Fiscal impact to be determined.
83. Conduct an audit of municipally-supported recreationand sport opportunities available to all genders and workto increase participation by girls, women, and personsidentifying as female or gender diverse.
Staff-led, with resources from the Canadian Women in Sport Organization.
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84. Consider the recommendations of the City’s Equity,Diversity, and Inclusion Strategy through theimplementation of recreation and parks servicesincluding those related to key principles, representation,
training, space design, guide/handbook, andperformance metrics.
Staff-led, with resources
from the Coalition of Inclusive Municipalities, the Canadian Centre for
Diversity & Inclusion, and other municipalities.
85. Develop a Community Engagement Plan to welcomeand involve all residents in recreation and parksopportunities.Staff-led.
86. Work with the Aboriginal Sport Circle andIndigenACTION to discuss ways of collaborating withIndigenous People to reflect sport and recreation needsin Pickering.
Staff-led. There may be added costs to support groups.
87. Ensure that all public spaces are safe and welcomingspaces for staff and users as outlined in the SaferSpaces Canada criteria.
Staff-led. There may be
added costs for training (note: the Safe Zone Project is a free online resource).
88. Articulate and seek Council approval for all recreationand parks levels of service in preparation for the needfor expanded growth-related services. This work will
entail working with a third-party to identify all services,how often and the standards to which they are delivered,resources required, and potential efficiencies.
Consultant: $80,000 to $100,000
89. Develop a Ten-Year Staffing Plan that reflects the
approved levels of service and changes in servicerequirements (e.g., staffing levels, office space, etc.) dueto the growth of the population.
Staff-led or consultant: $75,000
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90. Develop a Staff Training and DevelopmentContinuum that identifies the necessary knowledge,skills, and competencies for each job type. This exerciseshould document current trends and developments that
will keep staff performing at a high level and improvereadiness for succession planning.
Staff-led (Human Resources). There may be added costs for
training.
91. Refine existing performance metrics and prepare aconcise annual report card to reflect changes inparticipation rates, service delivery, volunteerism,utilization of public spaces, satisfaction levels, and otheroutcomes from recreation and parks participation.
Staff-led.
Table 42: Implementation Recommendations
# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
92. Regularly monitor progress of the Ten Year Plan,including tracking of growth and demographic
characteristics, activity patterns, facility usage,participation levels, trends, and completedrecommendations.
Staff-led. Coordinate with
all involved departments as appropriate.
93. Ensure that planning for major capital projects includes
meaningful community engagement and feasibilitystudies that validate building program and servicerequirements and are aligned with community needs,
partnership opportunities, and financial capabilities.
Project-specific. May be staff-led or require outside services.
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94. Develop a communications plan following approval of
the Ten Year Plan to create awareness about its keymessages and recommendations amongst residents andstakeholders. Implement a system for the regular
reporting of the plan, including an annual report card tothe community.
Staff-led.
95. Establish annual work plans to identifyrecommendations requiring implementation within thecoming year. Work plans should identify departmentalleads, partners, funding requirements and sources, etc.
Staff-led through annual budget process.
96. Undertake a comprehensive review and update of theTen Year Plan to begin no later than 2033. Timing maybe accelerated based on the pace of implementation andchanges within the community.
Consultant: $200,000
97. Use this Ten Year Plan as a resource in establishingthe City’s annual budget documents, capital forecasts,development and community benefits charges studies,secondary plans, and other related studies.
Staff-led. Coordinate with
all involved departments as appropriate.
98. Where appropriate and consistent with City policies andpriorities, consider alternative funding and cost-sharing approaches such as (but not limited to)
fundraising, grants, private-public partnerships,sponsorships, surcharges, capital reserve contributions,and various forms of collaboration to provide the best
value to residents.
Staff-led / best practice.
99. Assess and ensure that operating budget implicationsare identified and appropriately resourced prior toapproving major capital projects.Staff-led / best practice.
190 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
# Recommendation 1-3 years 4-6 years 7-10+ years Costs / Implementation
100. Foster effective partnerships and co-locationopportunities with landowners and public agencies(e.g., public libraries, schools, etc.) that support theimprovement, provision, and expansion of recreation,
parks, and community facilities that addressdemonstrated needs.
Staff-led / best practice.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) 1
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Table of Contents
Appendix A: Project Alignment
Appendix B: Trend and Best Practice Review
Appendix C: Analysis of Public Input
Appendix D: Asset Inventory and Mapping
Appendix E: Supporting Materials for Facility Needs Assessments (Trends, Input, Usage)
Appendix F: Types of Partnerships and Approaches to Evaluation
Appendix G: Description of Existing Park Type
Appendix H: Parkland Policy Background
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) A-1
Appendix A: Project Alignment
The following documents and studies were reviewed and integrated as appropriate into the analysis within this Ten Year Plan.
Sector / Provincial Documents
•Framework for Recreation in Canada
•Parks for All
•Ontario Culture Strategy
•Ontario Planning Act
•Provincial Policy Statement
•Accessibility for Ontarians with Disabilities Act
City of Pickering Documents
•Corporate Strategic Plan (2023)
•Recreation and Parks Master Plan (2017)
•Skateboard Strategy (2017)
•Official Plan (Edition 9)
•Envision Durham Official Plan (2023)
•Development Charges Background Study (2022)
•Capital Budget (2023)
•Northeast Pickering Secondary Plan – Community Services and Facility Study (2023)
•Five-Year Accessibility Plan 2021-2025
•Cultural Strategic Plan (2014)
•Age Friendly Community Plan (2019)
•Integrated Transportation Master Plan (2021)
•Asset Management Plan (AMP) (2020)
•Community Safety & Wellbeing Plan (2023-draft)
•Public Art Plan (2023/2026)
•Corporate Energy Management Plan (2019-2024)
•Recreation User Fee Study (ongoing)
•Facilities Renewal Study (2024)
•Digital Strategy (ongoing)
•Community Tourism Plan (ongoing)
•Equity, Diversity and Inclusion Strategy (ongoing)
•Community Climate Adaptation Project (ongoing)
B-1 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Appendix B: Trend and Best Practice Review
Below are several trends that are influencing the demand for and delivery of recreation and parks services in Canadian municipalities. Some of these trends have emerged as a result of the COVID-19 pandemic, while others have been affecting service provision for several years. These trends have been considered against other study inputs (such
as public consultation and local usage levels) to inform the Plan’s recommendations. Additional detail on each trend can be found in the Ten Year Plan’s supporting materials (Interim Report #2).
General Participation Trends, Behaviours, and Policy Responses
• Promoting Health and Wellness
• Engaging the Aging Population
• Combating High Levels of Physical Inactivity
• Participating in Sport
• Growing Concerns over Affordability
• Meeting the Demand for Unstructured, Self-Directed Activities
• Encouraging Outdoor and Free Play
• Accommodating Emerging Activities
• Focusing on Inclusion and Access
• Improving Gender Equity and Women’s Sports & Fitness
• Using Recreation and Parks to Support Indigenous Reconciliation
• Offering Safe Spaces for Marginalized Populations
• Sport Specialization and Long-term Player Development Models
Service Delivery Trends
• The Necessity of Partnerships
• Data, Technology and Digital Transformation
• Declining Volunteerism
Infrastructure Trends
• Rationalizing and Addressing Aging Infrastructure
• Designing Facilities to be Sport-Friendly
• Parks as Critical Outdoor Spaces
• Supporting Active Transportation
• Growing Emphasis on Neighbourhoods and Local Opportunities
• Increasing Focus on Environmental Design and Climate Change
Pandemic Impacts and Possible Future Implications
• Social Infrastructure is Vital to our Mental and Physical Health
• Parks Continue to be Appreciated and Well Used
• Virtual Programming has Emerged as an Option
• Many are Returning to Play, but Affordability is a Rising Concern
• Evolving Financial and Staffing Challenges
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-1
Appendix C: Analysis of Public Input
The following is a summary of public and stakeholder input received through the Ten Year Plan’s community engagement program.
A1. Public Open Houses
Broad community input was sought through drop-in
open houses, pop-up booths, and a community-wide survey (the latter is described in the next section).
Four public open house sessions (three in-
person and one virtual) were held to engage
interested residents, community partners, and user groups in the planning process. The open houses were available for all community members to attend. In total, over 210 participants attended
these sessions to discuss their ideas with the
Consulting Team and City staff.
1.November 14, 2023 (Morning), Chestnut HillDevelopments Recreation Complex2.November 15, 2023 (Afternoon), Chestnut
Hill Developments Recreation Complex
3.November 15, 2023 (Evening), Chestnut HillDevelopments Recreation Complex4.November 28, 2023 (Evening), VirtualConsultation
These sessions were promoted through the City’s
website, email networks, roadside signs, posters in City facilities, social media accounts, and traditional media. The in-person events consisted of information boards detailing the scope and process, sticky notes on display
boards, comment sheets, a priority polling station and
child’s voice drawing station to identify public priorities. The virtual session provided a presentation followed by a facilitated discussion and group chat for interactive feedback. In addition to these sessions, feedback
provided by residents via the activation boards also
contributed to public open house input.
C-2 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Additionally, City staff used smaller versions of the open house displays to create awareness about the community survey and to engage community members throughout Pickering. Pop-up sessions were held at:
•Don Beer Arena
•Delaney & O'Brien Arenas
•East Shore Community Centre
•George Ashe Library and Community Centre
•Pickering GO Station
•Pickering City Centre (shopping centre)
•Special events, including Fall Fling and Winter Nights City Lights
Key Themes from the Open Houses
Common themes that emerged from Public Open house discussions, emails, display
boards, comment sheets, and priority polling station are summarized below.
Summary of Feedback from Public Open House Display Boards
Requested Improvements or Additions
Indoor Recreation Outdoor Recreation and Parks
Swimming
•Additional, larger, warmer pool (4)
•Indoor slide, diving board (4)
•More swim times (classes, public) (4)
•Outdoor water play (i.e., splash pads)
Pickleball Courts
•Dedicated facility (indoor and /oroutdoor) (6)
Additional Programming
•Parent classes, pottery and summer
youth (3)
•Evening and weekend options (2)
Improved changerooms and washrooms
•Better showers, hockey changerooms, working locks (3)
•Accessible washrooms
•Female only washrooms
Fees
•Better facility rental rates for residents
•Reduced personal trainer rates
•Free gymnastics
Basketball Courts
•Accessible and safe courts across thecity
•Areas for teenagers to hangout
•New courts in Seaton area
Environment
•Supporting trail connections (3)
•Acknowledging conservation areas
and wildlife spaces amongst the City’spark locations
•Pursuing environmental partnerships,events, and protecting native plants
Playgrounds
•More and bigger playgrounds (2)
•Fun accessible playgrounds
Pickleball Courts
•Dedicated outdoor courts (3)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-3
Requested Improvements or Additions
Indoor Recreation Outdoor Recreation and Parks
Sign-up
•More capacity for programs with largewaitlists (2)
Outreach
•Advertise facilities in the community,cross promote with other communityservices
•Encourage more usage of high
schools
Basketball Court / Gymnasium
•New basketball court (2)
Community Centre
•Providing larger facility in the core
•Providing a new facility in Seaton
Racquetball Courts
•Maintaining existing courts (2)
Other Mentions
•Indoor playground, rock climbing wall(2), improving gym capacity, adding aconcession to the recreation complex
Skateboarding
•Facility near White Road and BrockRoad
•Facility in an allocated area to attractteenagers
•The skate park on Bayly seemsunderutilized
Splash Pads
•Splash pads throughout Pickering (2)
Swimming
•Outdoor pool (2), possibly atFrenchman’s Bay
Other Mentions
•Cricket fields (2), Outdoor rinks (2),Water park (2), Community gardens, Lawn bowling, Outdoor track
Sample Comments
Indoor Recreation Outdoor Recreation and Parks
“More options for swimming lessons to meet
demand”
“Dedicated indoor pickleball facility”
“Better options for recreation programs on the weekend and in the evening”
“Accessible washroom near sports clinic”
“Eliminate paid parking at Waterfront”
“Carry on with Century club program - to keep people motivated for exercise”
“Better playgrounds with splash pads”
“Allocate areas for facilities that would attract teenagers such as basketball and skate boarding, too many youth hanging out in the mall”
“We are fortunate to have some beautiful parks and open green areas in Pickering. These could be used to hosting city sponsored activities in the summer like yoga,
meditation, and regular talks by experts on how the seniors can promote their physical and mental health and well-being.”
C-4 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Furthermore, through the interactive voting stations, open house attendees were asked to select amongst a series of recreation and parks facility activities to indicate which ones they wanted to see more of. Top priorities included:
•Tennis (13%)
•Pickleball (11%)
•Playgrounds & Outdoor Play (9%)
•Walking & Cycling on Trails (9%)
•Special Events & Festivals (8%)
Figure 17: Public Open House Poll Results – What Activities do you Want More of in Pickering? (n = 668)
Respondents also provided the following suggestions: racquetball (2), badminton, cricket, disc golf, dog areas, handball, and ping pong.
Key Themes from Engagement Boards
Three engagement boards were displayed at the Chestnut Hill Developments
Recreation Complex (CHDRC) and made available at other area facilities to interact
with users and community members, asking the public questions about recreation and park strengths, potential improvements, and priorities. A total of 570 community members interacted with the engagement board about key priorities.
2%
4%
4%
5%
6%
6%
6%
7%
7%
8%
9%
9%
11%
13%
Skateboarding & BMX
Ice Sports
Gymnasium Sports
Arts & Cultural Spaces
Outdoor Field Sports
Fitness & Wellness Activities
Child & Youth Spaces
Swimming & Waterplay
Adult & Older Adult Spaces
Special Events & Festivals
Walking & Cycling on Trails
Playgrounds & Outdoor Play
Pickleball
Tennis
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-5
Summary of Feedback from Engagement Boards
What improvements would you like to see for recreation and parks in the city?
The themes presented for question one include improving facilities, courts (volleyball), arenas, park washrooms, and the city’s waterfront. There is a desire for more swimming lessons and art programming as well as the improvement of playgrounds and splash pads. Demand for new dog parks and improved bike lanes in the City are also
apparent. Lastly, there is a want for more year-round City events.
What do you like best about City recreation and parks (facility, programs, or services)?
The themes present for question two are similar to the improvements from question one. Although community members believe there is a need for improvement in recreational facilities, residents still enjoy participating in programming and events hosted by the City. The sense of community that the City of Pickering provides can be
seen through staff’s interaction with the public and recreation users.
What are your top five priorities for our recreation and parks?
From gathering community members’ priorities through a sticker-dot matrix, the graph on the following page illustrates that
community members placed a priority on new or improved outdoor skating rinks, playgrounds, art studios, gymnasiums, park
washrooms, children’s programming, splash pads, indoor swimming pools, waterfront revitalization, and parks and open space. Community members’ priorities generally align with their requests for improved recreation and parks amenities.
C-6 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Key Facility Priorities from Engagement Boards
In comparison with the open house voting station (which
focused on activities
that residents want to see more of), opportunities for playgrounds and
outdoor play were
also highly ranked through the engagement boards.
58
61
62
67
90
104
114
118
125
126
12
11
11
44
6
18
16
13
17
31
6
3
4
2
3
0
2
3
4
2
16
25
21
3
10
9
12
18
8
15
Park Washrooms
Parks and Open Space
Swimming Pools (Outdoor)
Arenas (Ice Sports)
Gymnasiums (Basketball, Volleyball, Pickleball,etc.)
Splash Pads
Art Studios
Playgrounds
Swimming Pools (Indoor)
Outdoor Skating Rinks
CHRDC Arenas East Shore Community Centre Pickering City Centre (Shopping Mall)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-7
A2. Community Survey
To support the development of this Ten Year Plan, the City of Pickering hosted an online community survey that was available from October 25, 2023 to December 7, 2023. The survey was promoted through a variety of means (e.g., email blasts, social
media, traditional media, roadside signs, posters, etc.) and was available through the
project website. hard copies were also made available at City facilities.
A total of 1,374 responses (representing approximately an estimated 4,500 person residents) were received. The response rate is strong and – when combined with other consultation tactics and inputs – provides a solid basis for future planning. Being a
voluntary, self-directed survey, response rates varied by question; response levels have
been identified for each question (n=”x”) within the pages that follow.
The purpose of the community survey was to elicit information on the recreation and park preferences of Pickering residents. Specifically, the survey gathered information regarding: residency; participation rates in a variety of recreation and park activities and
facilities; programs / activity gaps; facility priorities; opinions on various statements;
preferred methods of communication; and demographics.
Participation
Participants identified the various types of recreational and park activities that they or members of their household have participated in the last 12 months. The most
common responses include passive activities such as walking or hiking on trails or outdoor tracks (82%), use of trails (52%), and picnicking or casual use of parks (42%). Following these responses were many more active recreational and park activities such as fitness programs and classes (36%), indoor leisure swimming (35%), and use of playground equipment (35%).
A chart showing the results of this question is contained in Section 3.2 of this report.
Participation profiles also resulted in the following observations:
•Respondents living in the rural areas north of Highway 407 (Claremont, etc.) are
less likely to participate in leisure swimming and picnicking;
•Respondents living between Highway 407 and Finch Avenue (Seaton, etc.) are
less likely to participate in pickleball;
•Respondents living south of Highway 401 are more likely to use trails (and cycle
on them) and participate in beach and paddling activities; and
•Respondents that speak a language other than English and French at home are
more likely to participate in leisure swimming and children’s programs (and
participate in swimming outside of Pickering).
C-8 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Over half (52%) of survey respondents identified that they are able to participate in recreational and park activities as often as they would like. Four-in-ten (43%) respondents identified that they are not able to participate as often as they would like.
Are you or members of your household able to participate in recreational and park activities as often as you would like? (n=1374)
For those that do not participate as often as desired, the most common reasons included poor or inadequate facilities (44%), inconvenient program times (39%),
too busy to participate (25%), cost to participate is too high (24%), and lack of programs that interest me (24%).
It was also found that respondents living in the rural areas north of Highway 407 (Claremont, etc.) are more likely to indicate that they cannot participate in recreation and park activities as often as they would like. Respondents identifying as a person with
a disability and those that speak a language other than English and French at home are
more likely to indicate that costs are a barrier to participation.
Yes52%
No43%
Don't Know5%
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-9
If not, what are the top reasons preventing you and your household from participating as often as you would like? (Multiple responses) (n=655)
Two-fifths (40%) of survey respondents indicated that “all” or “most” of their recreation and parks needs are met within Pickering. Conversely, 27% indicate that only “some” or “none” of their needs are met locally.
Generally, what percentage of your household's recreational and parks needs are met within Pickering? (n=963)
Most (88%) of survey respondents have a portion of their recreational and park activities met elsewhere outside of Pickering. Common responses for the types of needs met elsewhere include trail use (48%), park use (46%), swimming (31%), and special events (28%). Respondents living north of Finch Avenue (Claremont, Seaton, etc.) are more likely to participate in recreation and park activities outside of Pickering.
16%
2%
3%
3%
4%
6%
15%
18%
24%
24%
25%
39%
44%
Other
Don't Know
Poor health
Do not feel welcome or safe in facilities
Lack the confidence or knowledge to participate
Lack of child minding
Facility too far away (no transportation)
Unaware of opportunities
Lack of programs that interest me
Costs to participate is too high
Too busy to participate
Inconvenient program times
Poor or inadequate facilities
3%
2%
25%
30%
31%
9%
Don’t Know
None (0%)
Some (1-33%)
About Half (34-66%)
Most (67-99%)
All (100%)
C-10 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
If a portion of your needs are met elsewhere, what recreational and park activities do you or members of your household participate in outside of Pickering? (n=1218)
Half (47%) of survey respondents participate in recreation and parks activities outside of
Pickering due to their desired facility or program not being available in the City. Other common responses include the quality of facilities or programs being superior to what is available in Pickering (33%), facility or program is not available at their preferred time (23%), and the activity being less expensive elsewhere (17%). These indicate areas
where the City can focus improvements to encourage residents to use local facilities
rather than travelling to other municipalities.
Why does your household participate in these activities outside of Pickering? (Multiple responses) (n=1120)
17%
6%
15%
18%
21%
23%
23%
28%
31%
46%
48%
Other Activity (Not Listed Above)
None
Other Sports
Field Sports (Soccer, Baseball, etc.)
Court Sports (Tennis, Pickleball, etc.)
Ice Sports (Hockey, Skating, etc.)
Fitness
Special Events
Swimming
Park Use
Trail Use
17%
0%
7%
9%
11%
13%
17%
23%
33%
47%
Other
Don't Know
Closer to other activities or shopping
Tournaments / Special events/ Travel teams
“Connected” to the other community / Used to …
Closer to home, work or school
Less expensive
Facility/program not available at the preferred time
Quality of facility / program is superior
Facility/program is not available in Pickering
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-11
Programs/Activity Gaps
Participants were asked to rate their satisfaction with the available recreational programs and activities for different age groups. The age groups that generally had an
even distribution of satisfaction/dissatisfaction were families, adults, and children.
Seniors and older adults were generally more satisfied than dissatisfied with programs and activities. The age group that was more dissatisfied than satisfied were teens, suggesting that this may be an area of future focus for the City (the youth survey provides more information on this topic).
In general, please rate how satisfied you are with the recreational programs and activities available in Pickering to the following age groups (n=987-1068)
Note: “Don’t Know” responses not shown.
Respondents living north of Finch Avenue (Claremont, Seaton, etc.) and those that speak a language other than English and French at home are more likely to be dissatisfied with recreation program and activity options for children and youth, as well as festivals and events provided by the City. Respondents living north of Highway 407 (including Claremont) are more likely to be dissatisfied with options for older adults and
seniors.
Over half (57%) of survey respondents would like to see additional recreational and park activities or programs that are not currently available in Pickering. Nearly one-in-four (24%) suggested they would like to see more swimming offered in Pickering, followed by pickleball (15%), skating (15%), splash pads (8%), and cycling (7%).
31%
14%
34%
29%
28%
32%
28%
18%
32%
19%
15%
32%
Children (0-12 yrs)
Teens (13-19 yrs)
Adults (20-49 yrs)
Older Adults (50-64 yrs)
Seniors (65+)
Families
Satisfied Dissatisfied
C-12 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
What recreational and park activities or programs would you like to see offered in Pickering? (Open-ended) (n=704)
Facility Priorities
Survey respondents were asked whether they oppose or support the City spending additional funds to provide more of a variety of facility types in Pickering. The most
supported facilities for added investment include:
• Playgrounds (81%)
• Informal spaces in parks for picnics and free play (80%)
• Trails (79%)
• Indoor swimming pools (77%)
• Splash pads (76%)
• Outdoor skating rinks (75%)
• Dedicated youth space (73%)
• Dedicated seniors’ space (72%)
• Gymnasiums (72%)
The least amount of support was expressed for more specialized or niche facilities, such
as squash and racquetball courts, disc golf, BMX parks, and cricket, football and rugby fields.
Respondents living in the rural areas north of Highway 407 (Claremont, etc.) are more likely to support investment in outdoor pickleball courts and BMX bike parks.
Respondents that speak a language other than English and French at home are less
likely to support investment in ball diamonds, BMX bike parks, off-leash dog areas, and outdoor pickleball courts.
A chart showing the results of this question is contained in Section 3.2 of this report.
4%
5%
5%
6%
6%
7%
8%
15%
15%
24%
Accessible Programming
Basketball
Waterfront Activities
Senior Programming
Playgrounds
Cycling
Splash Pads
Skating
Pickleball
Swimming
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-13
Statements
A variety of statements were provided to survey respondents to determine their level of
agreement.
Please share your level of agreement with the following statements. (n=1163-1201)
Note: “Don’t Know” responses removed and remaining values recalculated.
57%
70%
71%
73%
78%
81%
83%
89%
89%
92%
97%
43%
30%
29%
27%
22%
19%
17%
11%
11%
8%
3%
I am satisfied with recreation programming providedby the City of Pickering, such as aquatics, camps,
fitness, seniors services, and more.
I feel that I am aware of the recreation and parkopportunities that are available in my area.
I am satisfied with the festivals and special eventsprovided by the City of Pickering.
Recreation programs offered by the City ofPickering are affordable for my household.
I am satisfied with the gardens and horticulturaldisplays in City parks and facilities.
I consider City parks to be accessible for people of
all abilities.
Building new recreation and parks facilities shouldbe a high priority for City Council.
I feel safe in City of Pickering parks and recreationspaces.
Upgrades to existing recreation and parks facilitiesshould be a high priority for City Council.
City of Pickering recreation facilities are important tomy quality of life.
City of Pickering parks are important to my qualityof life.
Agree Disagree
C-14 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
The most agreed upon statement (97%) was “City of Pickering parks are important to my quality of life”; similarly, 92% agreed that “City of Pickering recreation facilities are important to my quality of life”.
Conversely, over two-fifths (43%) of respondents disagreed with the statement “I am
satisfied with recreation programming provided by the City of Pickering, such as aquatics, camps, fitness, senior services, and more”. Also of note, 27% disagreed with the statement that “Recreation programs offered by the City of Pickering are affordable for my household”.
Communication
Preferred methods of communication to learn about City of Pickering events, programs, and activities include the City of Pickering website (69%), emails and digital newsletters (52%), roadside or digital signs (27%), and the City of Pickering Facebook page (25%).
What are your preferred methods of learning about City of Pickering events, programs, and activities? (Multiple responses) (n=1211)
6%
6%
7%
10%
11%
17%
18%
25%
27%
52%
69%
Other (specify)
Communications through Community or SportsOrganizations
City of Pickering Twitter / X Page
Newspapers
Word of Mouth
Other Social Media Channels
Posters or Paper Flyers
City of Pickering Facebook Page
Roadside or Digital Signs
Emails and Digital Newsletters
City of Pickering Website
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-15
Additional Comments
An open-ended response allowed for survey respondents to further share their ideas or comments. Common topics of discussion involved fees (10%), accessible/available
programs (9%), improved outdoor facilities (8%), pickleball (6%), and a new recreation
facility (6%).
Demographic Profile of Survey Respondents
Demographic information was collected from survey respondents to gain a better understanding of who participated. The survey represents an estimated 4,500 people in
responding households, for an average of 3.3 persons per household.
As is typical in surveys of this type, families with young children are somewhat over-represented in the survey, while young adults are somewhat under-represented. There was a very good response rate from older adults and seniors, indicating strong interest in the topics amongst these age groups. It should be noted that input from youth was
also specifically sought through a separate survey and related tactics.
Including yourself, what is the total number of persons within your household that fall into the following age categories? (n=1142)
The average age of survey respondents was 53 years (1970 birth year).
29%
20%
26%
38%
33%
26%
16%
11%
15%
24%
19%
15%
11%
12%
20%
19%
22%
17%
0%5%10%15%20%25%30%35%40%
Under 10 years
10-19 years
20-34 years
35-49 years
50-64 years
65 years and over
2021 Census (Pop) %% of People % of Households
C-16 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
In what year were you born? (n=1048)
The most commonly spoken language in responding households is English (99%),
which is not a surprising finding given that the survey was provided in English only. Of interest, however, is that 18% of responding households also speak a language other than English or French at home.
What languages are spoken in your household? (n=1171)
Prior to 1950 (74 yrs or older), 7%
1950 to 1959 (64 to 73 yrs), 19%
1960 to 1969 (54 to 63 yrs), 19%
1970 to 1979 (44 to
53 yrs), 19%
1980 to 1989 (34 to 43 yrs), 27%
1990 to 1999 (24 to 33 yrs), 10%
2000 or later (23 yrs or younger), 0%
English99%
French7%
Other Language18%
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-17
8% of participants identified themselves as a person with a disability.
Do you identify as a person with a disability? (n=1168)
95% of respondents live in the City of Pickering. The remaining 5% who responded live outside the City of Pickering in adjacent areas including Ajax (2.4%), Scarborough (0.8%), and Whitby (0.7%).
Almost half (49%) of survey respondents identified their postal code as beginning with L1V which is the area generally between Highway 401 and Finch Avenue. This is
followed by 24% of survey respondents with the postal code L1X (North of Finch Avenue [Seaton, etc.]), and 19% with the postal code L1W (South of Highway 401). A small number of residents in the L0H postal code area (Rural) were represented through the survey. Residents with the postal code L1Y (Claremont and area) were over-represented by 5% compared to Canada Post forward sortation areas.
Yes
8%
No89%
Prefer not to answer4%
C-18 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
If living in Pickering, what are the first three characters of your postal code? (n=1305)
Forward Sortation Areas (FSAs) in Pickering
Source: Canada Post
Almost half (47%) of survey respondents living in Pickering have lived locally for more than 20 years. Conversely, one-fifth (18%) of survey respondents are generally newcomers to the area, having lived in Pickering for less than 5 years.
How long have you lived in Pickering? (n=1300)
L0H0%
L1V49%
L1W19%
L1X24%
L1Y8%
Don’t Know0%
Less than 5 years18%
5 to 10 years16%
11 to 20 years19%
More than 20 years47%
Don't Know0%
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-19
A3. Youth Engagement
Youth engagement is crucial in the development of the Ten Year Plan. As youth are one of the largest user populations for the City, it is essential to understand their priorities for improving recreation and parks for Pickering.
The City of Pickering conducted youth engagement consultations through several
classroom presentations and dot-mocracy exercises at Pine Ridge S.S., Dunbarton S.S., St. Mary C.S.S., and various elementary schools. Additionally, an online youthsurvey was promoted by the City to engage students. A focus group session was alsoheld with members of PACT4Teens (Pickering Activity Council for Teens) and the City
of Pickering’s Central Library TAG (Teen Advisory Group).
The key findings from the survey are summarized below.
In-school Consultations
In-school Youth Consultation Methodology
Tactic Description
Student Leadership Team
City staff worked with student leadership teams at Pine Ridge S.S. to administer surveys to their peers during lunch hour and gain feedback for the plan. The leadership team also promoted participation in the priority dot-matrix exercise to students.
Classroom Presentations City staff designed presentations to focus on strategic planning and the importance of long-term planning in a community and personal
context. Students learned community engagement skills, strategic
planning, the importance of civic participation, and lastly, the decision-making process and how their input impacts the development of our community. Students completed the youth survey and participated in an interactive priority dot-mocracy
exercise as part of the presentation.
Elementary
School – Grades 7 & 8
Interactions with elementary schools consisted of presenting in
school classrooms with a brief overview of the project and
articulating the importance of their feedback in the planning process for their community. With City staff's guidance, students could complete a city-wide youth survey and participate in the interactive priority dot-matrix exercise.
Smaller versions of the engagement boards were taken to pop-ups at local Pickering elementary schools and secondary/high schools. Around 800 youth participated in this activity. The following graphs below show the top 10 priorities for both levels of
schooling. It is evident that youth community members' priorities are for recreational facilities and programming.
C-20 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Facility Priorities – Elementary School and Result (top ten)
Facility Priorities – Secondary/Highschool and Result (top ten)
Youth Survey
The youth survey was open to community members between 12 and 24 years of age, and achieved 827 online survey submissions. This survey was modelled off the
community survey, but included some youth-specific questions. By undertaking youth
16
18
5
13
14
15
41
7
20
34
1
1
7
4
1
2
7
8
2
4
1
4
10
9
3
6
15
8
6
22
9
2
20
8
35
26
23
Beach Activities
Indoor Sports Fields (Soccer, etc.)
Skateboard Parks
Swimming Pools (Indoor)
Soccer Fields (Outdoor)
Playgrounds
Arenas (Ice Sports)
Beach Volleyball Courts
Gymnasiums (Basketball, Volleyball, Pickleball,…
Basketball Courts (Outdoor)
E.B. Phin Public School Biidaasige Mandamin Public School
Glengrove Public School Bayview Heights Public School
25
12
24
26
21
23
19
31
16
30
5
15
21
21
32
27
22
18
34
32
21
26
16
17
11
23
35
29
30
23
Swimming Pools (Outdoor)
Arenas (Ice Sports)
Soccer Fields (Outdoor)
Playgrounds
Beach Volleyball Courts
Basketball Courts (Outdoor)
Parks & Open Space
Swimming Pools (Indoor)
Teen Programs
Gymnasiums (Basketball, Volleyball, Pickleball,…
Pine Ridge Secondary School St. Mary Catholic Secondary School Dunbarton High School
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-21
consultations at local schools in Pickering and promoting the survey across the community, City staff were able to engage youth and gain an immense amount of feedback for the plan.
Information regarding the grades of respondents and the schools they attend was
collected to gain a better understanding of who participated. The majority of the surveys’ respondents were in grades 7 to 12, with Grade 9 (28%) having the highest representation.
What Grade are you in? (n=827)
One-third (33%) of respondents attended Pine Ridge Secondary School, followed by St.
Mary’s Catholic School (24%), Dunbarton High School (15%), Elizabeth B Phin Public School (10%), and Bayview Heights Public School (8%).
1%
0%
2%
2%
13%
13%
17%
28%
13%
12%
Other (please specify)
Still Deciding
Working/Looking for Work
College/University
Grade 12
Grade 11
Grade 10
Grade 9
Grade 8
Grade 7
C-22 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Which School do you attend? (n=783)
One-in-two (50%) indicated they identify as a female, whereas 44% indicated they identify as a male, 2% indicated they identify as transgender, and 1% indicated they identify as non-binary. Additionally, 21% indicated they identify as a Racialized Person
and 14% indicated they speak a first language other than English.
5%
1%
2%
4%
8%
10%
15%
24%
33%
Other (please specify)
St Elizabeth Seton Catholic School
Biidaasige Mandamin Public School
Glengrove Public School
Bayview Heights Public School
Elizabeth B Phin Public School
Dunbarton High School
St. Mary's Catholic School
Pine Ridge Secondary School
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-23
Tell us a bit about yourself (n=749)
Respondents identified the various types of recreational and park activities that they
have participated in the last 12 months. The most common responses include passive activities such as walking or hiking on trails or outdoor tracks (47%), hanging out at my school (38%), hanging out/casual use of parks (34%), and leisure swimming (indoor) (30%). Volleyball (33%) was also amongst the top five responses, representing a more
organized recreation activity.
Walking or hiking on trails or outdoor tracks was also the most common response on the community survey, as were passive and unstructured activities such as use of trails, and picnicking or casual use of parks. furthermore, participation rates for most active sports (aside from Pickleball) were higher on the youth survey.
1%
1%
1%
1%
2%
3%
3%
4%
14%
21%
44%
50%
I identify as non-binary
I identify as an Indigenous person
I identify as a person with a disability
I am a parent/guardian of a child under 18 yearsof age
I identify as transgender
I immigrated to Canada within the last 5 years
I do not wish to answer this question
I identify as a member of the 2SLGBTQI+community
I speak a first language other than English
I identify as a Racialized Person
I identify as a male
I identify as a female
C-24 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
During the last 12 months, please indicate the types of recreational or park activities that you have participated in. (Select all that apply). (n=801)
5%
0%
1%
1%
1%
2%
3%
5%
7%
8%
8%
9%
9%
10%
10%
11%
11%
11%
12%
13%
13%
14%
14%
16%
17%
17%
17%
20%
22%
23%
23%
24%
26%
27%
28%
28%
30%
33%
34%
38%
47%
Other (please specify)
Racquetball
Curling
Squash
Bocce
Lawn Bowling
Pickleball (Outdoor)
Pickleball (Indoor)
Cricket
Lane Swimming
Baseball or Softball
Field Sports such as Rugby or Football
Kayaking/Canoeing/Dragon Boating
Beach Volleyball
Tennis
Splash Pads
Skateboarding or Scootering
Recreational Skating (Outdoor)
Fishing
Hockey or Figure Skating
Special Events in Parks
Beach Activities
Leisure Swimming (Outdoor)
Cycling on Trails
Recreational Skating (Indoor)
Fitness Programs and Classes
Soccer (Indoor)
Use of Trails
Basketball - Indoor
Basketball - Outdoor
Use of Playground Equipment
Cycling on Roads
Weight-training
Soccer (Outdoor)
Running or Jogging on Outdoor Tracks
Badminton
Leisure Swimming (Indoor)
Volleyball
Hanging Out/Casual Use of Parks
Hanging out at my school
Walking or Hiking on Trails or Outdoor Tracks
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-25
Over one-half (55%) of students identified that they are able to participate in recreational and park activities as often as they would like. One-in-five (21%) identified that they are not able to participate as often as they would like.
Are you able to participate in recreational and park activities as often as you would like? (n=809)
The top reasons identified to be preventing youth from participating as often they would like included too busy to participate (65%), unaware of opportunities (34%), lack of programs that interest me (32%), costs to participate is too high (29%), and facility too
far away (no transportation) (25%).
What are the top reasons preventing you from participating as often as you would like, if any? (Select up to three responses) (n=167)
55%
21%
24%
Yes
No
Don't know
1%
1%
4%
8%
11%
13%
17%
20%
25%
29%
32%
34%
65%
Lack of child minding
Poor health
Do not feel welcome or safe in facilities
Don’t know
Other (please specify)
Lack of confidence or knowledge to participate
Poor or inadequate facilities
Inconvenient program times
Facility too far away (no transportation)
Costs to participate is too high
Lack of programs that interest me
Unaware of opportunities
Too busy to participate
C-26 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Respondents identified what they like to do in their free time. Responses were led by less active types of activities such as chilling at home or a friend’s house (81%), watching tv/movies/streaming (74%), playing music (58%) and video games (56%),
proceeded by playing organized sports (soccer, basketball, hockey) (41%).
What do you like to do in your free time? (Select all that apply) (n=787)
5%
11%
12%
15%
22%
24%
28%
31%
33%
39%
41%
56%
58%
74%
81%
Other (please specify)
Participating in arts or cultural programs andevents (dance, theatre, art, choir)
Group/club activities (books, chess, graphicnovel, STEM, Glee)
Volunteer in the community
Participate in unstructured activities(skateboarding, swimming, pick-up ball)
Visit a library or community centre
Painting/drawing/designing
Reading/writing
Go to a restaurant or coffee shop
Hang out in a park
Play organized sports (soccer, basketball,hockey)
Play video games
Play music
Watch tv/movies/streaming
Chill at home or a friend’s house
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-27
Respondents identified when they prefer to attend activities and/or events during the school year. The leading response consisted of after school between 3-6pm (62%), followed by Saturday afternoon (28%), Monday to Thursday evenings after 6pm (27%),
Friday evenings after 6pm (25%), and Saturday evening (20%).
When do you prefer to attend activities and/or events during the school year? (n=782)
Respondents identified when do they prefer to attend activities and/or events during the summer. One-in-two (50%) respondents identified weekday afternoons, followed by
Weekday evenings (36%), Saturday afternoon (35%), Sunday afternoon (26%), and Saturday evening (24%).
When do you prefer to attend activities and/or events during the summer? (n=768)
8%
13%
15%
19%
19%
20%
25%
27%
28%
62%
Before school
Sunday morning
Saturday morning
Sunday afternoon
During lunch
Saturday evening
Friday evenings after 6pm
Monday to Thursday evenings after 6pm
Saturday afternoon
After school between 3-6pm
15%
16%
21%
24%
26%
35%
36%
50%
Sunday morning
Saturday morning
Weekday mornings
Saturday evening
Sunday afternoon
Saturday afternoon
Weekday evenings
Weekday afternoons
C-28 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Respondents identified what would make them want to use Pickering’s recreation programs and facilities more. Top responses were led by Public Wi-Fi (70%), followed by More drop-in/free gym time (41%), Youth or teen nights/events (36%),
Volunteer/work opportunities (35%), and Friendly and welcoming staff (32%).
What would make you want to use Pickering’s recreation programs and facilities more? (n=783)
Respondents identified what additional recreational and park activities or programs they would like to see offered in Pickering. In general, active sport amenities (e.g., gymnasiums, arenas, basketball courts, etc.) ranked higher for youth than they did on the broader community survey, though playgrounds, park washrooms, and swimming
pools rated highly on both surveys. Youth also rated arts studies much higher than the community survey.
Top facility priorities from the youth survey included:
• swimming pools (indoor) (32%) • playgrounds (30%) • gymnasiums (basketball, volleyball, pickleball, etc.) (30%) • arenas (ice sports) (29%) • arts studios (27%) • basketball courts (outdoor) (27%)
5%
7%
20%
27%
30%
32%
35%
36%
41%
70%
Other (please specify)
Partnerships with youth-serving organizations and
agencies (disability, Aboriginal, LGBTQ2S,…
Promotion of youth programs and activitiesthrough social media
Bright/comfortable spaces and furniture
Youth Spaces or Chill Zones
Friendly and welcoming staff
Volunteer/work opportunities
Youth or teen nights/events
More drop-in/free gym time
Public Wi-Fi
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-29
From the list below, what recreational and park activities or programs would you like to see offered in Pickering? (n=769)
1%
2%
2%
3%
4%
4%
6%
7%
8%
8%
9%
10%
11%
11%
11%
11%
12%
12%
13%
13%
13%
14%
16%
16%
17%
18%
18%
18%
22%
23%
26%
27%
27%
29%
30%
30%
32%
Racquetball Courts
Squash Courts
Parkland Acquisition
Pickleball Courts (Outdoor)
Dedicated Seniors’ Space
Disc (Frisbee) Golf Courses
Other (please specify)
Community Vegetable Gardens
Informal Spaces in Parks for Picnics and Free…
Cricket Fields
Baseball or Softball Diamonds
Outdoor Fitness Equipment or Exercise Areas
Tennis Courts (Outdoor)
Special Event Parks
Football or Rugby Fields
Community Halls or Banquet Rooms
Skateboard Parks
Dance/Fitness Studios
Splash Pads
Dedicated Youth Space
BMX Bike Parks
Off-Leash Dog Parks
Fitness Centres (equipment-based)
Bike Lanes (on-road)
Outdoor Skating Rinks
Trails (off-road)
Soccer Fields (Outdoor)
Indoor Sport Fields (Soccer, etc.)
Swimming Pools (Outdoor)
Beach Volleyball Courts
Park Washrooms
Basketball Courts (Outdoor)
Arts Studios
Arenas (Ice Sports)
Playgrounds
Gymnasiums (Basketball, Volleyball, Pickleball,…
Swimming Pools (Indoor)
C-30 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Respondents shared their level of agreement with a set of statements. Statements with the highest rates of agreement consisted of:
•89% of respondents agree that upgrades to existing recreation and parks
facilities should be a high priority for City Council.
•86% of respondents agree that building new recreation and parks facilities shouldbe a high priority for City Council.
•81% of respondents agree that I feel safe in City of Pickering parks andrecreation spaces.
•81% of respondents agree that City of Pickering parks are important to my
wellbeing.
•80% of respondents agree that City of Pickering recreation facilities are importantto my wellbeing.
Statements regarding affordability and promotion/awareness exhibited the highest
levels of disagreement, as they did on the community survey.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-31
Please share your level of agreement with the following statements (n=772)
66%
64%
72%
73%
79%
80%
81%
81%
86%
89%
34%
36%
28%
27%
21%
20%
19%
19%
14%
11%
Recreation programs offered by the City ofPickering are affordable.
I feel that I am aware of the recreation andpark opportunities that are available in myarea.
I am satisfied with recreation programmingprovided by the City of Pickering, such asaquatics, camps, fitness, youth services, andmore.
I am satisfied with the festivals and specialevents provided by the City of Pickering.
I consider City parks to be accessible for
people of all abilities.
City of Pickering recreation facilities areimportant to my wellbeing.
City of Pickering parks are important to mywellbeing.
I feel safe in City of Pickering parks andrecreation spaces.
Building new recreation and parks facilitiesshould be a high priority for City Council.
Upgrades to existing recreation and parksfacilities should be a high priority for CityCouncil.
Agree Disagree
C-32 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Youth identified the best way to tell them about programs and services available in the City of Pickering. Top responses consisted of by Instagram (46%), the City of Pickering website (44%), TikTok (42%), posters or messages at school (38%), and email (34%).
What is the best way to tell you about programs and services available in the City of Pickering? (n=760)
Youth were asked “How can recreation and parks facilities be designed to be more youth-friendly?” The leading responses are detailed below.
How can recreation and parks facilities be designed to be more youth-friendly? (n = 501)
1.Free Wi-Fi 5.Affordability
2.Inclusivity 6.Friendly Staff
3.Accessibility 7.Volunteer Opportunities
4.Safety 8. Engaging/Colourful
2%
2%
12%
16%
18%
20%
20%
21%
31%
34%
38%
42%
44%
46%Instagram (@cityofpickering)
City of Pickering website
TikTok
Poster or messages at my school
Email
From my teachers
Snapchat
From my parents
Paper flyer
Text
X/Twitter (@cityofpickering)
Facebook (@cityofpickering)
From my settlement worker
Other (please specify)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-33
Students were also asked “Do you have other ideas to share or any additional comments that are important for the Recreation and Parks Plan? For example, are there any new programs or activities you would like to see?" The leading responses are
detailed below.
“Do you have other ideas to share or any additional comments that are important for the Recreation and Parks Plan? For example, are there any new programs or activities you would like to see?" (n = 578)
1.Swimming Pools 5.Basketball Courts
2.Art Programs 6.Badminton Courts
3. Volunteer Opportunities 7.Skating Rink (Outdoor/Indoor)
4.Volleyball Courts (Beach/Indoor)8. Fitness
Youth Focus Group Session
A focus group session was held on November 15th at the Chestnut Hill Developments
Recreation Complex with four (4) Pickering youth, including members of the TAG Public
Library Group. Discussion was guided by the following questions and resulted in these key themes.
Participation – What recreation, sport, and cultural activities do you and other youth participate in? How do these benefit you?
•Fitness Centre – A healthy body improves mental health and sleep quality
•Public Skating – Is a fun way to meet new people (i.e., indoor and outdoor rinks)
•Soccer Club – Drills, practices, and scrimmages boost motivation
Improvements – What recreation facilities and parks do you use the most? What improvements would make them more youth-friendly?
•Fitness Centre – Needs to be expanded and provide more equipment
•Basketball Courts – More open courts are needed in Pickering as it is currentlydifficult for friends from different schools to find a spot to meet and play; outdoorlocations with forests behind them should be fenced
•Gymnasiums / Fitness Centre – Would like to see one to two hours of space
designated exclusively for young girls
•Pools – More open swim times
Barriers – Are recreation facilities, programs and services for youth inclusive, safe, accessible and affordable? What barriers prevent you from participating as often as you would like?
•Lighting – All public spaces require sufficient lighting for safety and use duringmonths when it gets dark outside earlier in the evening
•Park Monitoring – Locations in more isolated areas can feel unsafe
C-34 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
•Language/Culture – New immigrant residents may not be aware of recreationand park services and community events.
•Affordability and Availability – Various programs may be more difficult toparticipate in and spaces for school events may be difficult to secure.
•Security at Facilities – Concern about safety at public facility spaces (i.e.,
library study rooms, washrooms).
•Public Transportation – Isn’t always dependable
Working together – How can we work together to provide youth in Pickering with more opportunities in the future?
•Niche Sports – Support less popular or thriving activities to keep participantsengaged (i.e., Rugby)
•Youth Outreach – Introduce programs to elementary school students
•Female Participation – Provide an encouraging environment that is judgementfree.
•Volunteering – More opportunities for youth.
A4. Stakeholder Input
A series of workshops and interviews were held to engage community user groups
and key stakeholders and to solicit their input on a range of topics such as participation trends, facility utilization, satisfaction levels, current and future facility and programming needs, opportunities to partner, and more. The community user groups and stakeholders participating in the sessions consisted of those serving various sectors such as sports, arts and culture, seniors, youth, special interests, and government
agencies.
The distribution list included approximately 75 user groups, community organizations, service providers, and partners involved in the delivery of recreation and parks services across Pickering. Over 25 organizations participated, representing approximately 6,300 members.
Sessions were held virtually on the following dates:
•Sports User Groups - November 6, 2023, from 6:30 pm to 8:00 pm
•Special Interest User Groups - November 7, 2023, from 6:30 pm to 8:00 pm
•Seniors User Groups - November 8, 2023, from 1:30 pm to 3:00 pm
•Arts and Cultural User Groups - November 9, 2023, from 6:30 pm to 8:00 pm
•Key Informant / Agency Interviews – February 2024 (various)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-35
Stakeholder Organizations Participating in the Workshops and Interviews
Organization Type Reported Membership
Affiliation for Inspiring Youth Upliftment (AFIYU) Community Sport 30 members
Amberlea Tennis Club Community Sport 40 members
Central Lake Ontario Conservation Authority Government Agency N/A
Cricket Club Community Sport 50 members
CSWB Committee Cultural/Community N/A
Durham Catholic District School Board Government Agency N/A
Durham Champions Cricket Club Community Sport 90 members
Durham District School Board Government Agency N/A
Durham Recreational Sports League Community Sport N/A
Ontario Handball Association Community Sport N/A
Pickering Accessibility Advisory Committee Cultural/Community 7 members
Pickering Club Community Sport 500 members
Pickering Dragon Boat Club Community Sport N/A
Pickering FC / Pickering Soccer Centre Community Sport 3500 members
Pickering Men’s Slow Pitch Community Sport 675 members
Pickering Public Library Government Agency N/A
Pickering Rouge Canoe Club Community Sport 525 members
Pickering Squash Club Community Sport 120 members
Pickering Swim Club Community Sport 400 members
Pine Ridge Art Council Cultural/Community N/A
Racquetball Community Sport 50 members
Rouge National Urban Park Government Agency N/A
Toronto Region Conservation Authority Government Agency N/A
Waterfront Visionary Advisory Committee Cultural/Community N/A
Westshore Slo-Pitch Community Sport 180 members
55+ Program Committee Cultural/Community N/A
Additional workshop sessions were held with youth and arena user groups. Input from the youth session is summarized in the previous section, input from the school boards is summarized in Interim Report #4, and input from the arena session is contained in the Arena Strategy (under separate cover).
C-36 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Strengths
Stakeholders suggested the following as being core strengths of the City’s recreation and parks facilities and services:
•groups expressed satisfaction with the facilities they use, including Chestnut HillDevelopments Recreation Complex (great location), with reasonably pricedservices
•groups expressed satisfaction with the resourcefulness of City Staff and theiropenness to collaborate with local organizations
•parking at green spaces was identified as an asset for outdoor recreationfacilities
•the City’s skateparks are used consistently and cleared off in the winter
•the sport courts at the Pickering Soccer Centre are well used for futsal (the
Provincial championships are being hosted here), as well as sports such as
volleyball
•the City’s trails were highlighted as a strength (though improvements were alsosuggested) and have been well used since the pandemic
•there may be potential to leverage sites such as Petticoat Creek Conservation
Area (TRCA) to support recreation programing and events
Trends
Organizations are influenced by many trends. Stakeholders indicated the following:
•tennis, skateboarding, and soccer have seen notable increases in participation
since the pandemic
•Pickering FC (soccer) has seen growth since the pandemic (especially inyounger ages and high performance streams) and the club is projecting itsmembership to grow by 19% by over the next three years, generating greaterusage of outdoor fields and indoor turf time;
•demand for cricket is growing, including for youth and women’s teams
•concern was expressed that sports and activities are going to be stretched with
Pickering’s future growth over the next 10 years, including impacts of rising costs
of living
•several groups sought clarification around permitting and fees (the City’s permitprocess is being revised for the coming year)
•some groups noted a drop off in participation amongst young women in sportsaround the ages of 15 and 16 years
•waitlists for meeting spaces, pre-competitive swim programming were noted
•some suggested that there is sustained demand for virtual programming,especially for seniors
Barriers and Challenges
Many of Pickering’s organizations experience challenges. Stakeholders suggested the following:
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-37
•improved accessibility between facilities (e.g., soccer dome) and publictransportation was identified as a suggestion to address barriers
•there is a shortage of locations to support aquatic program demand
•difficulty accessing the waterfront was noted as a barrier
•advertising programs and gaining new members (e.g., squash – requested
access to CHDRC digital screens)
•communicating with the City prior to weekend tournaments to ensure propercoordination
•lack of accessibility in Frenchman’s Bay poses safety concerns and requires thePickering Dragon Boat Club to hire an external truck to launch their boats
•TRCA has noted challenges with state of good repair at sites such as Petticoat
Creek Conservation Area and encourages partnerships to assist with funding of
major capital projects
•there was concern that water-based activities in Frenchman’s Bay may beimpacted by pending land sales
•parking capacity at the CHDRC during peak times
•Millennium Square washrooms have no access during early spring for thePickering Dragon Boat Club; parking can also be a challenge at this location
•programming is limited with only two courts for racquetball and handball
•skateparks do not have a reputable public perception and older facilities are notdesigned well
•the cricket field and clubhouse at Alex Robertson Park has electricity but norunning water to support the group’s growing demand
•some trails do not have enough lighting and trash cans
•there are currently no plans to develop new trailheads on the Pickering side of
the Rouge National Urban Park at this time; however, a visitor’s centre will soon
be built in the Park that will offer new opportunities to learn about the Park and
the broader ecosystem
•transit access to trails and greenspaces in rural or peripheral locations was noted
as a barrier by local conservation authorities
Facility Needs
Organizations identified a wide range of facility and service needs. Stakeholders suggested the following:
•a new multi-use recreation facility in Seaton
•completion of the Youth/Seniors Centre project
•several groups are seeking affordable rental space for meetings and activities
•new indoor pool facility to support demand (minimum 25 metres, competition-
ready)
•more indoor and outdoor pickleball courts;o operators of the Soccer Centre are currently working with the City to
improve the flooring so that it can be used for pickleball
o preference for outdoor courts to be dedicated (not shared with other uses)
•continued expansion of the skatepark network:
C-38 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
o want to see quicker action for a new skatepark as they already have a budgetfor a smaller facility and need to choose a locationoadd pump tracks at David Farr Memorial Park, the Hydro Corridor, and on
Liverpool Rd. North
o add a skate spot at Kinsmen Bay Ridges Park and consider St. Mary’s Parkas a location for a skatepark with a sculptural skate dotoconsider skate dots for older park renovations (simple ledges or sculptures)that can be skated on in the shared public space, and skateparks and spots
at new parks in North Pickering (without murals, gravel parking lots, or Honey
Locust trees – which create challenging conditions)
•another cricket pitch for adult games; could consider a cricket/soccer field overlay
•soccer fields in neighbourhood parks and shared fields could be opportunities tosupport soccer and other sports moving forward, in addition to lit rectangularfields being developed in Seaton (many young families and diverse populations);a variety of field sizes are needed in order to comply with Ontario Soccerguidelines and additional turf fields (or even a stadium field) are desired in order
to accommodate growing needs
•soccer fields in Beverly Morgan Park are in need of revitalization
•Pickering FC cited a lack of indoor space as the club uses 98% of available
hours at the Pickering Soccer Centre’s; there is very little capacity on the indoor
turf field for non-soccer community rentals
•improvements to ball diamonds at Forestbrook Park
•the City is lacking an accessible water facility at Frenchman’s Bay for the canoeclub
•bigger event spaces (indoor and outdoor), like Esplanade Park, MillenniumSquare, Kinsmen Park, Dunmore Park
•enhanced trails, including north/south connecting trails within the city, improving
the Seaton Trail connection, and connecting to the hydro corridor and RougeNational Park
•the Toronto and Region Conservation Authority (TRCA) is implementing a trails
strategy in cooperation with several other partners; the Gatineau portion of the
Meadoway corridor trail is currently a focus.
•public washrooms that coincide with the times that parks are open
•clubhouse improvements and providing storage space for equipment at AlexRobertson Park
•adding a canteen for athletes and a snack shop facility in the Chestnut HillDevelopments Recreation Complex
•improving squash court lighting and general maintenance (i.e., floor gaps,
cleaning walls)
•partnering with the City to use waterfront for programming
Implementation
Organizations were asked about their future plans, including threats and opportunities to
their sustainability. Stakeholders suggested the following:
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) C-39
• having groups work together in Pickering to improve outdoor facilities, rather than competing against each other for permits
• concern over registration fees being impacted by facility rate changes (i.e., would the City consider 1.5-hour permits?); one group requested that the City review its permitting process to optimize access for local groups
• Accessibility Committee could be involved in more public meetings to contribute accessibility insight when designing new facilities
• providing soft infrastructure in parks to serve as community hubs (e.g., bake ovens, bbq’s, seating, etc.)
• pursuing partnership opportunities for park space to leverage keystone properties such as Petticoat Creek Conservation Area, Rouge National Urban Park, Greenwood Conservation Lands, Meadoway corridor, etc. o the TRCA specifically highlighted the potential withing the Petticoat Creek
Conservation Area and is about to enter into discussions with the City
about broader uses (e.g., community events, recreation, sports, etc.) and
management
o the Greenwood Conservation Lands also have potential to serve as a
district park with several sports fields when the City moves forward with
this initiative
• local conservation authorities and Rouge National Urban Park expressed a
desire to work with the City to improve trail routes, looped trails, and connections
of greenspace across Pickering, including the new Seaton community
• the aforementioned agencies also deliver a wide range of nature-based and
educational programming and expressed an interest in working more closely with
the City on events and programming
• providing more centralized facilities in Pickering
• swimming programs should be assessed as demand is significant and growing
• more creative senior programming (for younger seniors), including use of trails
• time sharing on shared tennis and pickleball courts (designated times)
• maintaining affordability was noted as a key objective by several groups
• tap payment technology at all recreation centres
D-1 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Appendix D: Asset Inventory and Mapping
Listing of Existing Indoor Recreation Facilities
Facility Supply Locations
Recreation Centres 1 Chestnut Hill Developments Recreation Complex
Community Centres 3 Dr. Nelson F. Tomlinson Community Centre*; East Shore Community Centre, George Ashe Library & Community Centre
Community Halls (stand-alone) 6 Brougham Hall*; Greenwood Community Centre*; Mt. Zion Community Centre*; West Shore Community Centre; Whitevale Arts and Cultural Centre*; Whitevale Community Centre*
Cultural Venues 1 Pickering Museum Village
Ice Pads 5 Chestnut Hill Developments Recreation Complex (2), Don Beer Arena (3)
Indoor Pools 2 Chestnut Hill Developments Recreation Complex (25m), Dunbarton Indoor Pool (25m)
Fitness Spaces 1 Chestnut Hill Developments Recreation Complex (health club and 3 fitness studios)
Indoor Tennis Courts 4 Chestnut Hill Developments Recreation Complex (4)
Indoor Turf Fields 1 Pickering Soccer Centre*
Squash Courts 8 Chestnut Hill Developments Recreation Complex (6 international, 2 doubles)
Racquetball Courts 2 Chestnut Hill Developments Recreation Complex (2)
Gymnasiums (municipal) 2
Dr. Nelson F. Tomlinson Community Centre*; East Shore Community Centre (plus school board gymnasiums through the
Community Use of Schools agreement)
Note: City gymnasiums are undersized/non-regulation
Multi-Purpose Rooms 18 Various locations
Older Adult Space 1 East Shore Community Centre
* operated by third-party
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) D-2
Listing of Existing Outdoor Recreation Facilities
Facility Supply Locations
Soccer & Multi-Use Fields 46 (52 ULE)
Artificial Full (Lit) 2 Bay Ridges Kinsmen Park, Beverley Morgan Park
Full (Lit) 4 Bay Ridges Kinsmen Park (3), Dunmoore Park
Full (Unlit) 13
Amberlea Park, Bay Ridges Kinsmen Park, Beverley Morgan Park (4), Creekside Park, Diana, Princess of Wales Park, Glengrove Park, J. McPherson Park, Rick Johnson Memorial
Park, St. Mary Park (2)
9v9 (Unlit) 11 Bay Ridges Kinsmen Park (2), Brockridge Community Park (2), Douglas Park, Maple Ridge Park, Shadybrook Park (2),
Village East Park (3)
7v7 (Unlit) 16 Diana, Princess of Wales Park (3), Dunbarton High School (9), Glengrove Park, Rick Hull Memorial Park (2), Whitevale Park
Ball Diamonds 27 (39 ULE)
Hardball (Lit) 3 Amberlea Park, Brockridge Community Park, Don Beer Memorial Park
Hardball (Unlit) 1 S.M. Woodsmere Park
Softball (Lit) 9 Bay Ridges Kinsmen Park (4), Centennial Park, Claremont
Memorial Park, Dunmoore Park (2), Greenwood Park
Softball (Unlit) 14
Amberlea Park, Beverley Morgan Park, Brockridge Community Park (2), Forestbrook Park (2), Glengrove Park, J. McPherson Park, Lookout Point Park, Major Oaks Park (2), Maple Ridge Park, Southcott Park, Valleyview Park
Cricket Fields 1 Alex Robertson Park
Tennis Courts
Club (Lit) 24
Bay Ridges Kinsmen Park (4), Claremont Memorial Park (2), David Farr Memorial Park (4), Dunmoore Park (4), Greenwood Park (2), Maple Ridge Park (2), Rick Hull Memorial Park (2), Shadybrook Park (2), Village East Park (2)
Pickleball Courts 11
Overlaid 5 Amberlea Park, Diana, Princess of Wales Park (3), Rick Hull Memorial Park
Overlaid with Tennis 6 Claremont Memorial Park (4), Village East Park (2)
D-3 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Facility Supply Locations
Basketball Courts 17 (13.5 FCE)
Full 10
Beverley Morgan Park, Diana, Princess of Wales Park, Don Beer Memorial Park, East Woodlands Park, Frenchman's Bay
Rate Payers Memorial Park, Glengrove Park (2), Rick Hull Memorial Park, St. Mary Park, Valleyview Park
Half 6
Beverley Morgan Park, Canadian Green, Creekside Park,
Major Oaks Park, Rouge Valley Park, St. Mary Park, Usman Green
Outdoor Ice Rinks 3 Claremont Memorial Park, Greenwood Park, Whitevale Park
Skateboard Parks 2
Skate Park 1 Diana, Princess of Wales Park
Skate Spot 1 West Shore Community Centre
Splash Pads 3 Amberlea Park, Beachfront Park, Foxtail Green
Playgrounds
(locations) 63
Amaretto Park, Amberlea Park, Balsdon Park, Bay Ridges Kinsmen Park, Bayshore Tot Lot, Beechlawn Park, Beverley
Morgan Park, Bidwell Tot Lot, Bonita Park, Brockridge Community Park, Bruce Hanscomb Memorial Park, Canadian Green, Centennial Park, Chickadee Park, Claremont
Memorial Park, Clearside Park, Creekside Park, David Farr Memorial Park, Denmar Park, Diana, Princess of Wales Park, Don Beer Memorial Park, Douglas Park, Dunmoore Park,
East Woodlands Park, Erin Gate Park, Ernie L. Stroud Park, Forestbrook Park, Foxtail Green, Frenchman's Bay Rate Payers Memorial Park, Glen Ravine Park, Glendale Park, Glengrove Park, Green River Park, Greenwood Park, Hollyberry Green, J. McPherson Park, Lookout Point Park, Lynn Heights Park, Major Oaks Park, Maple Ridge Park, Martin's Tot Lot, Mitchell Park, Mulmer Tot Lot, Nature Haven Park, Pinegrove Park, Progress Frenchman's Bay East Park, Rick Hull Memorial Park, Rick Johnson Memorial Park, Rosebank South Park, Rouge Valley Park, S.M. Woodsmere Park, Shadybrook Park, Shadybrook Tot Lot, Southcott Park,
St. Mary Park, Summer Park, Sunbird Trail Park, Usman Green, Valleyview Park, Village East Park, Whitevale Park, William Jackson Green, Woodview Tot Lot
Outdoor Fitness Locations 1 St. Mary Park
Community Gardens 2 Diana, Princess of Wales Park – 107 plots (plus future phase
proposed to the north), George Ashe Library & Community Centre – 12 plots (55+ Plot to Plate Program)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) D-4
Facility Supply Locations
Off-Leash Dog Areas 3 Balsdon Park, Dunmoore Park, Grand Valley Park (2)
Bocce Courts 4 Centennial Park (4)
Beach Volleyball Courts 5 Diana, Princess of Wales Park (5)
Lawn Bowling Greens 2 East Shore Community Centre (2)
Running Tracks 2 Beverley Morgan Park, St. Mary Park
Note: The inventory excludes sports fields permitted by school boards.
*Each lit soccer field is equivalent to 1.5 unlit fields; each lit artificial turf field is equivalent to 3.0 unlit
fields (unlit turf is equivalent to 1.5 fields) (ULE). Each lit ball diamond is equivalent to 2.0 unlit diamonds
(ULE). Each half court is equivalent to 0.5 of a full basketball court (FCE).
Benchmarking Against Comparator Municipalities
Facility City of Pickering Municipal Benchmarking Provision Ratio
Indoor Facilities 1 facility per “x” residents
Community Centres 25,800 32,900
Ice Pads 20,600 20,000
Indoor Pools 51,500 45,400
Fitness Spaces 103,000 47,700
Indoor Tennis Courts 25,750 212,000
Gymnasiums (municipal) 51,500 38,200
Older Adult Spaces 103,000 63,600
Youth Spaces None 73,400
Outdoor Facilities 1 facility per “x” residents
Soccer & Multi-Use Fields 2,200 2,700
Ball Diamonds 3,800 3,900
Basketball Courts 7,600 6,700
Beach Volleyball Courts 20,600 190,800
Cricket Fields 103,000 136,300
Lawn Bowling Greens 51,500 190,800
Off-leash Dog Parks 33,340 22,700
Outdoor Fitness Locations 103,000 86,700
D-5 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Facility City of Pickering Municipal Benchmarking Provision Ratio
Playgrounds 1,600 1,700
Skateboard Parks 51,500 46,200
Splash Pads 34,300 12,400
Tennis Courts 4,300 4,700
Pickleball Courts (shared/dedicated) 9,400 21,900
Community Gardens (plots) 900 2,100
Parkland
Active Parkland 1.8 ha/1000 2.0 ha/1000
Notes: The comparator group includes eleven regional and/or large urban municipalities in Ontario: Ajax, Barrie, Burlington, Clarington, Guelph, Markham, Milton, Oakville, Oshawa, Richmond Hill, and Whitby. Unless otherwise noted, the data includes facilities that are owned and/or permitted for public use by the
municipality, including facilities that are leased or under agreement (such as school board fields and facilities for which the City of Pickering has an agreement for public use).
Per capita provision rates for City of Pickering based on 2024 estimated population of 103,000 persons. The City of Pickering does not currently have any dedicated outdoor Pickleball Courts.
Listing of Existing Parks
Park # Existing Park Park Type Ownership Neighbourhood Parkland Area (ha) Open Space Area (ha)
P-001 Pinegrove Park Neighbourhood City Highbush 0.6 1.7
P-002 Balsdon Park Neighbourhood City Bay Ridges 1.2 --
P-003 Frenchman's Bay Rate Payers
Memorial Park
Neighbourhood Frenchman’s Bay Ratepayers Bay Ridges 0.6 --
P-004 Douglas Park Neighbourhood City Bay Ridges 1.6 2.9
P-005 Mitchell Park Parkette City Bay Ridges 1.3 --
P-006 Lookout Point Park Neighbourhood City West Shore 1.9 --
P-007 Rick Hull Memorial Park Neighbourhood City Rosebank 2 --
P-008 Centennial Park Community City Brock Ridge 3.5 0.2
P-009 Glengrove Park Neighbourhood City Liverpool 4 --
P-010 Maple Ridge Park Neighbourhood City Liverpool 2.4 --
P-011 David Farr
Memorial Park Community City Liverpool 4.9 --
P-012 Major Oaks Park Community City Brock Ridge 3.5 1.2
P-013 J. McPherson Park Neighbourhood City Amberlea 2.1 --
P-014 Shadybrook Park Neighbourhood City Amberlea 2.8 --
P-015 Forestbrook Park Community City Liverpool 3.2 6.9
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) D-6
Park # Existing Park Park Type Ownership Neighbourhood Parkland Area (ha) Open Space Area (ha)
P-016 East Woodlands Park Parkette City Woodlands 0.4 --
P-017 Valleyview Park Neighbourhood City Highbush 1.6 --
P-018 Village East Park Neighbourhood City Village East 2.1 --
P-019 Beechlawn Park Neighbourhood City Village East 1.5 --
P-020 Denmar Park Neighbourhood City Village East 0.6 --
P-021 Southcott Park Neighbourhood City Brock Ridge 1.4 --
P-022 Ernie L. Stroud Park Neighbourhood City Woodlands 2.2 --
P-023 Woodview Tot Lot Parkette City Highbush 0.3 --
P-024 Bay Ridges Kinsmen Park City OPG Bay Ridges 13.6 1.6
P-025 Dunmoore Park Community City/TRCA West Shore 6.3 --
P-026 Brockridge Community Park Community City Brock Ridge 5.9 3.2
P-027 Amberlea Park Community City/Region Amberlea 3.7 --
P-028 St. Mary Park Community City Amberlea 3.4 --
P-029 Beverley Morgan
Park Community City/Hydro One Liverpool 10.6 3.4
P-030 Diana Princess of Wales Park Community Hydro One City Centre / Village East 12.1 --
P-031 Alex Robertson Park City OPG Bay Ridges 21.8 --
P-032 Beachfront Park City OPG Bay Ridges 3.6 3.2
P-033 Shadybrook Tot Lot Parkette City Amberlea 0.4 --
P-035 Bayshore Tot Lot Parkette City Bay Ridges 0.4 --
P-037 Bidwell Tot Lot Parkette City West Shore 0.4 --
P-038 Bonita Park Parkette City Dunbarton 0.4 --
P-039 Bruce Handscomb Memorial Park Neighbourhood City/TRCA West Shore 3.4 0.7
P-040 Chickadee Park Parkette City Highbush 0.2 --
P-041 Clearside Park Parkette City Brock Ridge 0.2 --
P-043 Esplanade Park City City City Centre 2.5 --
P-044 Amaretto Park Parkette City Amberlea 0.1 --
P-045 Progress Frenchman's Bay East Park Community City Bay Ridges 1 --
P-046 Glendale Park Neighbourhood City Liverpool 1.1 --
P-048 Erin Gate Park Parkette City Dunbarton 0.2 --
P-049 Nature Haven
Park Parkette City Rouge Park 0.1 --
P-050 Lynn Heights Park Neighbourhood City Liverpool 1.3 3.1
P-051 Martin's Tot Lot Parkette City Remaining
Rural 0.2 --
D-7 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Park # Existing Park Park Type Ownership Neighbourhood Parkland Area (ha) Open Space Area (ha)
P-052 Mulmer Tot Lot Parkette City Liverpool 0.3 --
P-057 Sunbird Trail Park Parkette City Amberlea 0.2 --
P-058 Creekside Park Neighbourhood City Duffin Heights 1.9 --
P-061 Rotary Frenchman's Bay West Park City TRCA West Shore 20.8 --
P-064 Rosebank South Park Parkette City Rosebank 0.4 --
P-065 Rouge Valley Park Parkette City Rougemont 0.7 2.2
P-066 Bicentennial Arboretum Parkette City Amberlea 0.1 --
P-067 Summer Park Parkette City Amberlea 0.2 --
P-070 Glen Ravine Park Parkette TRCA West Shore 0.5 2.6
P-072 S.M. Woodsmere
Park Neighbourhood City Amberlea 2.4 --
P-073 Grand Valley Park City TRCA Duffin Heights / Liverpool 1.7 40
P-074 Green River Park Parkette City Remaining
Rural 0.5 --
P-075 Whitevale Park Community City Remaining Rural 1.1 0.5
P-076 Greenwood Park Community City
Greenwood,
Kinsale & Estate Clusters 2.7 1.6
P-077 Claremont
Memorial Park Community City Claremont &
Area 2.5 --
P-078 Town Hall Park Parkette Public Works Canada Remaining Rural 0.1 --
P-080 Don Beer
Memorial Park Community Public Works
Canada
Remaining
Rural 2.7 --
P-081 William Jackson Green Parkette City Duffin Heights 0.4 --
P-082 Canadian Green Parkette City Duffin Heights 0.4 --
P-085 Usman Green Parkette City Brock Ridge 0.3 --
P-101 Foxtail Green Parkette City Lamoureax 0.4 --
P-102 Rick Johnson Memorial Park Neighbourhood City Lamoureax 1.8 --
P-114 Hollyberry Green Parkette City Wilson Meadows 0.2 --
Source: City of Pickering, 2024 Note: open space parcels excluded
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) D-8
Listing of Future Parks
Park # Future Park Park Type Ownership Neighbourhood Area (ha)
P-083 Carousel Green Village Green City Duffin Heights 0.5
P-086 unnamed Neighbourhood City Duffin Heights 2.7
P-087 Stoneypay Village Green Neighbourhood City Duffin Heights 0.6
P-088 City Centre Park Urban Park City City Centre 0.6
P-103 unnamed Parkette City Lamoureax 0.1
P-104 unnamed Parkette City Lamoureax 0.3
P-105 Hawkridge Green Parkette City Lamoureax 0.3
P-106 Smoothwater Green Parkette City Lamoureax 0.4
P-107 Titanium Park Neighbourhood City Lamoureax 1.3
P-108 Zircon Green Parkette City Lamoureax 0.3
P-109 Sea Mist Park Neighbourhood City Lamoureax 1.4
P-110 Winding Woods Green Parkette City Lamoureax 0.3
P-111 Virgo Green Parkette City Lamoureax 0.2
P-112 Heartwood Green Parkette City Wilson Meadows 0.4
P-113 Scarlett Green Parkette City Wilson Meadows 0.2
P-115 unnamed Community City Wilson Meadows 11.1
P-116 unnamed Parkette City Mount Pleasant 0.3
P-117 unnamed Community City Mount Pleasant 1.4
P-118 unnamed Parkette City Mount Pleasant 0.3
P-119 unnamed Parkette City Mount Pleasant 0.7
P-120 unnamed Neighbourhood City Mount Pleasant 1.3
P-121 unnamed Parkette City Mount Pleasant 0.6
P-122 unnamed Community City Mount Pleasant 1.6
P-123 Dave Ryan Community Park Community City Wilson Meadows 4.7
P-124 Brickyard Park Neighbourhood City Thompson's Corners 1.5
P-125 Joshua Tree Green Parkette City Thompson's Corners 0.3
P-126 Passionfruit Green Parkette City Thompson's Corners 0.3
P-127 Blazing Star Green Parkette City Thompson's Corners 0.5
P-128 unnamed Neighbourhood City Thompson's Corners 1.5
P-129 unnamed Community City Thompson's Corners 4.2
P-130 unnamed Community City Brock Taunton 0.5
P-131 unnamed Neighbourhood City Wilson Meadows 1.7
P-132 unnamed Parkette City Wilson Meadows 0.3
P-133 unnamed Parkette City Wilson Meadows 0.3
P-134 unnamed Neighbourhood City Wilson Meadows 1.7
P-135 unnamed Neighbourhood City Wilson Meadows 1.5
P-136 unnamed Parkette City Wilson Meadows 0.3
P-137 unnamed Parkette City Mount Pleasant 0.3
P-138 unnamed Parkette City Mount Pleasant 0.3
D-9 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Park # Future Park Park Type Ownership Neighbourhood Area (ha)
P-139 unnamed Parkette City Mount Pleasant 0.4
P-140 unnamed Parkette City Mount Pleasant 0.4
P-141 unnamed Open Space City Mount Pleasant 8.0
P-142 unnamed Open Space City Mount Pleasant 2.4
P-143 unnamed Parkette City Mount Pleasant 0.3
P-144 unnamed District Park City Innovation Corridor 36.4
P-145 Scenic Lane Park Neighbourhood City Duffin Heights 1.4
P-146 Forsythe Farm Park Neighbourhood City Claremont 1.7
Source: City of Pickering, 2024
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) D-10
Mapping of City Recreation Facilities and Park Amenities
City of Pickering Municipal Indoor Recreation Facilities
D-11 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
City of Pickering Soccer and Multi-use Fields (including permitted non-municipal fields)
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) D-12
City of Pickering Ball Diamonds
D-13 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
City of Pickering Outdoor Tenns and Pickleball Courts
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) D-14
City of Pickering Outdoor Basketball Courts
D-15 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
City of Pickering Playgrounds, with 800-metre catchment
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) D-16
City of Pickering Splash Pads
D-17 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
City of Pickering Other Outdoor Recreation Facilities
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) E-1
Appendix E: Supporting Materials for
Facility Needs Assessments (Trends, Input,
Usage)
1)Recreation and Community Centres
Market Trends
In this era of user convenience and cost recovery, most municipalities are centralizing multiple recreational and cultural facilities under one roof to offer a “one-stop-shop” experience – a key feature of the CHDRC. Best practices in facility design consider safety, comfort, connectivity with active and public transportation systems, and
opportunities for community gathering and socialization. This may include strategic
placement of seating areas, proximity to washroom facilities, and open concept design features.
Increasingly, these facilities are being designed as “community hubs” that provide a central access point for a range of needed health and social services – along with
cultural, recreational and greenspaces – to nourish community life. Partnerships with
service providers can help municipalities leverage resources and reach new audiences. This may include partnering with public libraries, school boards, service clubs, or other emerging activities. A future multi-use recreation complex in the Seaton community will fill many of these roles.
Community Engagement
The public expressed a high degree of satisfaction with the Chestnut Hill Developments Recreation Complex, including its location and range of reasonably-priced services. Among the top priorities expressed by residents was the need for a new multi-use recreation facility (with indoor pool, gymnasiums, etc.) in Seaton. Many stakeholders
also highlighted a desire for additional affordable rental space for meetings and
activities.
In addition, public input indicates that older adult and seniors’ services are highly valued. Through focus group workshops, a permanent hub for youth was suggested and the youth survey also found significant support for extended teen programming. Nearly
three-quarters (73%) of survey respondents support additional spending on space for
youth in Pickering and 72% support additional spending on space for seniors.
Usage Profile
Recreation complexes and community centres contain a wide variety of spaces, from meeting and activity rooms to specialized spaces such as pools and fitness centres.
The City tracks the utilization of spaces that are rentable and/or programmable.
E-2 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
On average, the usage rate for municipal meeting and activity rooms in 2023 was 38%. As this figure includes all open hours, including non-prime time, this level of usage is strong and shows that larger, more flexible spaces within multi-use facilities are in
highest demand. Usage data is not available for stand-alone community halls, but
anecdotal information suggests that hall usage would be substantially lower.
Table 43 : Recreation/Community Space Usage (2023)
Facility Hours of Usage per Room (2023) Usage Rate
CHDRC Banquet Halls 3,260 71%
CHDRC Meeting Rooms (2) 358 8%
CHDRC O’Brien Room 1,757 38%
Don Beer Arena Hall 1,483 32%
East Shore CC Gymnasium 1,591 35%
East Shore CC Meeting Rooms (3) 1,804 39%
George Ashe CC 2,513 55%
West Shore CC* 2,239 49%
Total Utilization 18,971 38%
*Leased to nursery school provider
Usage of other spaces within recreation and community facilities is captured under the analysis of activity-specific components in subsequent sections.
2)Indoor Pools
Market Trends
Swimming is the most popular organized recreation activity and pools are used to
deliver aquatic programs for a wide range of age groups, interests, and abilities. While
municipal outdoor pools provide a similar range of recreation experiences in the summer, indoor pools deliver year-round aquatic programming in a controlled environment. With that said, indoor aquatic centres are among the most intensive and expensive recreation facilities to operate, and their provision must be carefully
evaluated. Further, the pandemic reduced opportunities for many municipalities to offer
certification programs for lifeguards, which – coupled with the elimination of swim and lifeguard training from the Canadian Red Cross in 2022 – has created additional challenges in attracting and retaining sufficient qualified lifeguards and aquatic instructors.
The most common minimum design template for a publicly operated indoor pool is a 25-
metre rectangular tank with six swimming lanes. Trends in pool construction and retrofitting have seen an evolution in public pool design that offers more variety and that accommodates a growing diversity of users, thereby raising the bar in facility quality.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) E-3
Facility providers including the City of Pickering are responding to user demands for modern amenities including, but not limited to, family or universal change rooms, warmer pool temperatures, spray features, updated viewing galleries, and universal
design elements. Smaller secondary pool tanks (like at CHDRC) are sometimes
incorporated into facility design to support warm water therapy, training, and lessons for young children, older adults, or persons with disabilities. Indoor pools are frequently co-located with other recreation facilities such as gymnasiums, fitness space, and/or seniors recreation space in order to bolster overall usage, provide opportunities for
cross-programming cross-subsidization among facility operating units, and create a
holistic and convenient experience at a single destination.
Community Engagement
The community engagement program yielded very strong interest in expanding indoor swimming activities, with 77% of survey respondents supporting additional spending on
more indoor swimming pools, ranking 5th out of 36 facility types. Indoor pools were also highlighted through the youth engagement, where they were ranked by secondary/high schools as the 3rd highest facility priority. Specific requests were received for new, larger, and/or warmer pool in the Seaton community with accessible features (the CHDRC pools do not offer ramped or beach entry, creating challenges for some users).
Furthermore, swimming is a top activity amongst many age groups. The community survey found that more than one-third (35%) of Pickering households participate in indoor leisure swimming. While many residents use the pools in Pickering, swimming was noted as one of the main activities that they travel outside of the City to participate in (e.g., Audley Recreation Centre in Ajax).
Usage Profile
The City provides a broad range of registered swim programs from learn to swim to aquatic leadership. Programs are structured to appeal to all ages of the community. The pandemic had a significant impact on the City’s ability to maintain aquatic programming across all levels due to a shortfall of lifeguards and instructors. However, Pickering has
worked hard to address service levels and, as shown in the chart below, the City exceeded pre-pandemic registration figures for children’s lessons in 2023 and largely regained pre-pandemic registration levels overall. The City’s aquatics programming is running around a 90% fill rate at this time and many programs and time slots have wait lists. Additional direction on staffing levels and programming is contained in Section 5.
E-4 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Figure 18: Aquatic Program Registrants, 2014-2023 (not all years shown)
Pickering also offers public swim programs to accommodate residents and users that prefer swimming on their own schedule. Public swimming is a popular activity, aligning with broader national trends that suggest that there is a strong desire for unstructured,
drop-in programs for people with increasingly busy lifestyles. In 2023, the City reported nearly 78,000 drop-in participants, an increase of 13% over 2019 figures (69,000 visits). These statistics suggest growing demand for aquatic services in line with population growth.
3)Gymnasiums
Market Trends
Gymnasiums facilitate a variety of indoor sports and recreation opportunities that
require a hard surface, a large open space, and high ceilings, such as basketball, volleyball, badminton, pickleball, group fitness, and other active programs. While many other activities may take place in these facilities (e.g., special events), non-sport related rentals are sometimes discouraged to ensure that gymnasiums are used for high
demand recreation uses and to protect floor finishes from damage.
Gymnasiums are designed with adaptability and flexibility to accommodate a wide range of activities. While there is no standard template, gymnasiums are typically influenced by community needs, although the minimum gymnasium size should be large enough to accommodate a school-sized basketball court with high ceilings. It is common for larger
communities to provide gymnasiums large enough for multiple basketball courts, with
dividing walls to facilitate simultaneous activities, and various painted lines that delineate several indoor sports. Gymnasium amenities may also include storage, change rooms, seating areas, a stage, and/or kitchen.
0
500
1,000
1,500
2,000
2,500
3,000
3,500
4,000
4,500
5,000
2014 2016 2019 2023
Pre-school Children Youth Adult/Older Adult
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) E-5
The supply of municipal gyms is typically bolstered by school boards that provide after school access to their gyms through the Province’s Community Use of Schools initiative. This approach has strong merits in principle as it reduces the need for
municipalities to construct their own facilities and avoid tax-funded duplications in
service, while maximizing geographic distribution. The City of Pickering has a long history of working with school boards to maximize public access to these facilities (and will continue to do so through new school developments) and is also striving to include gymnasiums as part of all new recreation complexes.
Community Engagement
Through the community survey, 72% of residents support additional spending on gymnasiums in Pickering, ranking 9th out of 36 facility types. Approximately 14% of households indicated that they play indoor pickleball, 11% play basketball, 8% participate in badminton, and 7% play volleyball.
Youth are especially interested in more gymnasiums that can support basketball,
volleyball, badminton, etc. – gyms were the highest priority identified by high school students and the 2nd priority by elementary school students (behind indoor pools).
Engagement board feedback also identified new or improved gymnasiums as a high priority and there were similar requests from community organizations through the focus
group workshops.
4)Indoor Fitness Spaces
Market Trends
The growing emphasis on personal health and wellbeing is translating into increasing demand for private and public sector fitness services, including active living programming centred on general health and wellness, weight-training, cardiovascular
training, and stretching activities.
The provision of fitness space varies by municipality due to the robust nature of private-sector fitness centres. The private sector can often expend greater resources to provide an enhanced level of service to their members. For municipalities such as Pickering that operate their own fitness centres, the rationale is usually to promote overall community
health and to offer members a high-quality fitness experience as an affordable
alternative to the private sector.
Group fitness programming has become one of the fastest growing segments of the fitness sector, requiring additional spaces within many facilities to accommodate the various requirements. Indoor walking tracks are also more commonly being provided
within municipal facilities as they offer a safe and controlled year-round environment for
walking.
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Community Engagement
Users indicated a high level of satisfaction with the fitness centre at the CHDRC, among a few suggestions to improve the overall experience. Interest was also expressed for
expanding fitness and wellness activities to the Seaton community through a future
recreation complex.
The community survey found that fitness programs and classes are among the top activities that Pickering residents participate in, ranking 4th out of 41 options (this activity ranked 9th on the youth survey). Nearly two-third (65%) of respondents support
additional spending on more equipment-based fitness centres in Pickering, ranking 11th out of 36 facility types (fitness centres ranked 15th on the youth survey).
Usage Profile
The City offers a membership system that residents may purchase to access an unlimited number of fitness programs and services, including cardio workouts, yoga,
stretching and strength training, cycling, and more. Different membership packages are available. Non-members may drop-in to access the fitness centre or to participate in a fitness class on a pay-as-you-go basis.
Figure 19: Fitness Memberships Sold (selected categories)
Overall fitness and health club memberships grew by 13% between 2014 and 2019, illustrating steady growth prior to the pandemic. In 2023, total memberships have nearly reached pre-pandemic levels, with health club packages actually exceeding 2019 figures.
Additionally, the City offers registered active fitness programs, which are general
recreation activities aimed at promoting and encouraging physical activity. Due to the variety of active fitness programs that are offered, these activities take place in several locations.
1,
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5)Indoor Sport Facilities
Market Trends
Indoor artificial turf facilities provide enhanced recreation experiences that complement outdoor fields and respond to increasing demand for year-round play. While the primary
use of artificial turf fields is for soccer, these facilities can also accommodate other field
sports such as rugby, lacrosse, football, baseball, team conditioning and training, and fitness pursuits.
Indoor fields are typically provided by a municipality, the private sector, a community group, or a combination of the three to share financial and operating responsibility.
Many municipalities that have constructed permanent structures have tended to do so
by integrating them with other municipal recreation facilities and usually operate such facilities autonomously given that there are already municipal staff onsite to schedule, maintain, and provide access to the fields while overhead costs are usually built into the entire facility budget.
The size of indoor fields varies considerably. Some municipalities have designed fields
around the dimensions of an ice pad (including some that have converted surplus ice pads) while templates employed by other communities take the shape of a rectangular field. Even the size of an indoor rectangular field differs by community as some provide a full-size field that can be divisible into smaller fields while others provide fields that are
divisible in two (or are not divided at all).
Squash courts in Ontario are primarily provided by the private sector, although some municipalities like Pickering offer courts. The sport was at its peak in the 1970s and 1980s, with many jurisdictions reporting declines since the mid-1990s. Squash was recently approved as an Olympic sport for the 2028 Los Angeles Games, which may
help raise its profile.
From our experience, there are fewer municipal racquetball courts in Ontario than squash courts, due to racquetball having lower appeal. Courts are often provided by private sector fitness and racquet clubs. Racquetball Ontario recognizes the sport as both a stand-alone sport and a complementary “off season” activity, capable of
improving one’s athletic abilities23.
Most municipal squash and racquetball courts are legacy facilities; there are very few new courts being developed within municipal recreation facilities. Some municipalities are converting their courts to allow for other activities such as group fitness, golf simulators, rock climbing walls, etc.
23 Racquetball Ontario. (2024). https://racquetballontario.ca/clubs-with-programs/
E-8 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Community Engagement
Indoor court and field sports do not have the same broad appeal as the other community-serving facilities covered above. For example, through the survey, it is
estimated that 14% of households participate in tennis (indoor or outdoor), 9% in indoor
soccer (more popular amongst youth), 5% in squash, and 2% in racquetball. While there was moderate support for additional spending on indoor sports fields (ranking 16th out of 36 facility types), support was lowest for spending on squash and racquetball courts (ranking 34th and 35th, respectively).
Stakeholders expressed interest in additional indoor handball courts and improvements
to squash courts (i.e., lighting, general maintenance – addressed in 2024). The importance of continuing to have two handball / racquetball courts was also mentioned as this helps to support training, leagues, and tournaments.
Usage Profile
The City offers racquet court memberships (tennis, squash, racquetball), which provide
unlimited access to the courts and benefits including discounts on supporting and access to restricted fitness areas. Non-members may also purchase court time on a pay-as-you-go basis. Data provided by the City indicates that over the past three years, membership purchases for racquetball and squash have declined, while indoor tennis
memberships have grown. As a regional destination for racquet sports, the courts at the
CHDRC attract both residents and members from outside Pickering.
Figure 20: Court Memberships Sold (selected years)
57 49 45 29
188 187 183 167
86 73 69
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6)Soccer and Multi-Use Fields
Market Trends
Registration in Ontario Soccer’s affiliated organizations has been declining for well over a decade. In 2018, Ontario Soccer reported approximately 287,000 players which is
25% below registrations from 10 years prior.24 This decline is driven by factors such as
demographic trends, growing competition from other sports and activities, and the emergence of elite soccer clubs and academies that are not affiliated with the provincial governing body. Despite this, soccer continues to be a popular sport due to its worldwide appeal, high fitness quotient, and relatively low cost to participate. With
Pickering being a high-growth municipality, additional demand for soccer can be
anticipated.
Since Ontario Soccer adopted its LTPD model, organizations have been evolving the delivery of their programs. With less emphasis on scoring and winning, LTPD focuses on improved coaching, fewer games, more ball time, and skill development throughout
the year. Some of these new standards have a direct impact on the provision of fields,
particularly with respect to standards for field sizes and the number of players per team. This has impacted the demand for field time as there can be fewer players per team, more practices, and a need for smaller field templates.
Participation in youth football is cyclical in nature, with many regional differences across
the province. Greater concerns over head injuries have been a limiting growth factor,
although some groups have introduced flag football (non-contact) with good success. Some organizations have difficulty securing field access due to the large field dimensions and potential for turf damage. Artificial turf fields help to mitigate field damage by shifting use away from grass fields. Football groups tend to appreciate the
quality of artificial surfaces and value these fields’ resilience to inclement weather that
can occur in the spring and fall.
Community Engagement
Through focus group workshops, soccer was identified to have seen a notable increase in participation since the pandemic. Sport organizations suggested that new fields in
Seaton be a priority, that existing fields be revitalized where necessary, and that the
City offer additional support and coordination for weekend tournaments. Pickering FC is projecting its membership to increase by 19% by over the next three years, generating greater demand for both outdoor fields and indoor turf time.
The following findings were gleaned from the community survey:
•One out of six (17%) of responding households participated in outdoor soccerand 2% participated in field sports such as rugby or football, which ranked 16 and38 out of 41 activities, respectively.
24 Ontario Soccer Association. Annual General Meeting Reports.
E-10 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
•Three out of five (60%) respondents support the City spending additional funds toprovide more outdoor soccer fields and two out of five (40%) support spending
for more football or rugby fields in Pickering, which ranked 15 and 30 out of 36
facility types, respectively.
The following findings were gleaned from the youth survey:
•One out of four (27%) indicated they participate in outdoor soccer, which ranked
8 out of 41 activities.
•One out of ten (9%) indicated they participate in field sports such as rugby orfootball, which ranked 30 out of 41 facility types.
•One out of five (18%) indicated they would like to see outdoor soccer fields
offered in Pickering, which ranked 11 out of 36 facility types.
•One out of ten (11%) indicated they would like to see football or rugby fieldsoffered in Pickering, which ranked 23 out of 36 facility types.
Usage Profile
Pickering’s natural grass fields are generally available for booking between the third Monday of May until the last Sunday of September while artificial turf fields are available for rent from March to the end of October.
Until 2024, the City did not charge for field rentals and many were blanket booked. This
created challenges in assessing field utilization rates and did not generate revenue to
reinvest in field maintenance or upgrades.
To help bridge the gap, the City conducted a review of club websites to determine when fields may have been used in 2023. It was estimated that Pickering’s fields were used for approximately 13,575 hours in 2023, representing a total utilization rate of 377 hours
per field across 36 fields. Higher quality fields are used the most, with the artificial turf fields at Bay Ridges Kinsmen Park and Beverley Morgan Park leading the way (about 883 hours annually per field). With the City now beginning to levy a charge for field rentals, improved tracking of utilization can be anticipated.
Table 44: Estimated Soccer and Multi-Use Field Usage by Field Type (2023)
Field Type Estimated Hours of Use Number of Fields Hours per Field
Artificial Turf Field (Lit) 1,766 2 883
Full Size Soccer Field (Lit) 1,952 4 488
Full Size Soccer Field (Unlit) 3,485 13 268
Intermediate Size Soccer Field 2,460 11 224
Mini/Micro Soccer Field 3,912 16 245
Totals 13,575 46 295
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Source: City of Pickering, 2023
Pickering’s estimated field usage rates (an average of about 300 hours per field
annually) are in-line with field capacities and contemporary turf management guidelines. While some additional usage could likely be accommodated on existing grass fields, care must be taken not to overuse the fields or allow usage during wet conditions to as to maintain appropriate turf quality.
Pickering FC (soccer) is the largest user of rectangular fields in Pickering, responsible
for nearly 90% of all booked hours. Other notable users include the Durham Dolphins Football Club, adult soccer leagues, recreational users, and various other clubs.
7)Ball Diamonds
Market Trends
Baseball and its variations (including softball, fastball, etc.) have been experiencing a slight resurgence in recent years, particularly youth hardball. Baseball Ontario reported
over 15,000 competitive participants in 2019, which was a growth of 36% compared to
2009, though that figure excludes recreational/house leagues and non-affiliated ball groups (thus actual participation figures are greater).25 The renewed interest is driven by several factors such as a greater focus on skill development, and grassroots programs to engage children and youth at a young age to participate in the sport.
Suitable competition formats and facility types are core components of baseball’s Long-Term Player Development model. Full size diamonds with lights are in the greatest demand in most municipalities; many diamonds-built decades ago are too small to accommodate adult sports and may require expansion or fencing.
Community Engagement
Interest and demand for ball diamonds were generally found to be a low priority through the consultation program. Through the community survey, it was found that 9% of households participate in baseball or softball (ranking 27 out of 41 activities) and 49% support the additional spending on baseball or softball diamonds (ranking 27 out of 36 facility types).
From the youth engagement conducted by in school consultations, ball diamonds were not identified as a top ten facility priority by students. Findings from the youth survey indicated that 8% of youth participate in baseball or softball (ranking 31 out of 36 activities) and 9% of youth would like to see more baseball or softball diamonds offered in Pickering (ranking 27 out of 36 facility types).
25 Baseball Ontario. Annual General Meeting Reports.
E-12 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Usage Profile
Ball diamonds are generally available for booking between early-May and mid-October. Until 2024, the City did not charge for field rentals and many were blanket booked. This
created challenges in assessing field utilization rates and did not generate revenue to
reinvest in diamond maintenance or upgrades.
To help bridge the gap, the City conducted a review of league websites to determine when diamonds may have been used in 2023. It was estimated that Pickering’s diamonds were used for approximately 5,186 hours in 2023, representing a total
utilization rate of 192 hours per diamond across 27 fields. Lit diamonds are used the
most given their additional capacity for evening play. With the City now beginning to levy a charge for diamond rentals, improved tracking of utilization can be anticipated.
Table 45: Estimated Ball Diamond Usage by Field Type (2023)
Field Type Estimated Hours of Use Number of Fields Hours per Field
Hardball (Lit) 848 3 283
Hardball (Unlit) 171 1 171
Softball (Lit) 2,626 9 292
Softball (Unlit) 1,542 14 110
Totals 5,186 27 192
Source: City of Pickering, 2023
Pickering’s estimated diamond usage rates (an average of nearly 200 hours per diamond annually) indicate additional capacity for use. There were a small number of
diamonds that did not receive any formal use in 2023. While there is value in keeping
some diamonds in the inventory for casual use, the usage data suggests that there is a surplus of fields at this time.
8)Cricket Pitches
Market Trends
Cricket is experiencing strong growth in Canada due to immigration from cricket-playing countries (largely from South Asia and the Caribbean). Cricket Canada estimates that
there are approximately 130,000 players and 820 clubs across the country, with the largest concentration of players residing in Southern Ontario.
Due to its fast growth and large land requirement, there is generally a shortage of cricket fields across the province. At the community level, many groups have adapted the sport to make it more accessible, such as short-format cricket (e.g., T20/T25 which
can be played within a one-to-four-hour period) and tape-ball cricket (which uses a wrapped tennis ball for added safety). A field overlay consisting of a wicket between two soccer fields is a common practice for municipalities that are looking to balance field
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demands. Games are popular social events for non-participating family members and should be supported by picnic areas and other recreational amenities.
Community Engagement
Two area cricket clubs attended the stakeholder workshops and indicated that the sport
is growing, including amongst youth and women. These groups currently use the field at Alex Robertson Park, but noted that the lack of running water limits their ability to use it and their clubhouse more often. There were suggestions for creating a regulation cricket field to host adult games, either as a dedicated pitch or through a cricket/soccer field
overlay.
Interest in cricket was not evident though the surveying, with only 4% of households playing the sport (ranking 35 out of 41) and 40% supporting additional facilities (ranking 30 out of 36 facility types). However, it is likely that South Asian and other cultures closely associated with cricket were under-represented within the survey.
Usage Profile
Two clubs offer organized cricket in Pickering; the Pickering Cricket Club, which reported 50 members in 2003; and the Durham Champions Cricket Club, which reported 90 members in 2023 but primarily uses a field in Ajax. Additionally, many residents may play the sport casually or as part of clubs in other communities. Between
the two clubs, the field at Alex Roberston Park was used for an estimated 371 hours in
2023.
9)Tennis Courts
Market Trends
Research suggests that tennis is experiencing a resurgence over the past several years. This has also been confirmed through strong growth in local tennis clubs. Tennis
Canada reported that 6.5 million Canadians played tennis at least once in 2018 (45% of
these are considered frequent players), translating to growth of more than 32% since 2012. The study also found that over 50% of Canadians have played tennis in their lifetime and 61% of Canada’s tennis players utilize outdoor courts. The sport’s popularity carried forward through the pandemic as it was deemed one of the safer
sports to play at the time.
The popularity of tennis can be attributed to a number of factors such as the growing segment of baby boomers that seek social, lower impact activities (tennis has the second fewest injuries after baseball), and its appeal to diverse populations (23% of Canadian tennis players were born outside of the country). There is also a focus on
promoting the sport at the grassroots level. Tennis Canada reported that in 2018, over 2
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million children and youth aged 17 years and under played tennis in the past year.26 Part of this growth can also be linked to the success of Canadian men and women currently competing on the professional tours.
However, many municipal tennis courts were built in the 1970s and 1980s during a
wave of popularity and are deteriorating. Some are being repurposed to other uses (e.g., pickleball courts, ball hockey, etc.), while others are being redeveloped to today’s standards. Furthermore, most tennis players want to play year-round. In 2019, Tennis Canada prepared a Municipal Tennis Facilities Strategy and Partnership Framework to
advocate for more covered courts and to get more people playing tennis more often.
Community Engagement
Input from the public open houses indicated strong support for continued investment in both indoor and outdoor tennis courts. Comments were received that tennis participation has increased in Pickering since the pandemic and that sharing of court
with other sports has been challenging for many users.
The community survey found that 14% of households participate in tennis (ranking 20 out of 41 activities) and that 57% support the provision of more outdoor tennis courts in Pickering (ranking 18 out of 36 facility types). About 10% of youth indicated playing tennis and 11% would like to see more courts.
10)Pickleball Courts
Market Trends
Pickleball is experiencing a popularity boom across North America. Older adults wishing to remain physically active and have fun are driving participation growth in pickleball to levels where it is now the fastest growing recreational sport in Canada. Pickleball is a lower intensity sport that can be played on a modified tennis court (pickleball courts are
smaller in size with a slightly lower net height) and in gymnasiums. It is an accessible,
affordable, and social sport, able to be played by newcomers and more seasoned players alike. Due to its primary demographic, daytime usage is currently more frequent than evening use.
As the sport of pickleball matures in Canada, participation is becoming broader and
more diverse. This includes more competitive leagues (leading to the establishment of
sport organizations and advocates for higher-quality facilities) and instructional programs for youth (it is beginning to be taught in schools). Additionally, exposure to the sport is growing and there are now three North American professional tours and hopes of the sport qualifying for the Olympics as soon as 2032.
26 Tennis Canada. 2019. Let’s Play Year-Round. Retrieved from https://www.tenniscanada.com/wp-content/uploads/2019/07/02.-Executive-Summary.pdf
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A survey completed in January 2022 by Pickleball Canada showed that 8% of Canadian households report at least one household member plays pickleball once per month. This suggests that there are now one million Canadians playing pickleball at least once a
month, a near tripling of the number of pickleball players in Canada in two years.
As an emerging sport, Ontario municipalities are gradually adopting strategies to address needs, although many responses would appear to be ad hoc, testing demand along the way. For example, it has now become common for pickleball lines to be painted on outdoor public tennis courts, sometimes at the time of court resurfacing. This
may be supported by designated times or court booking systems for the two sports to
avoid conflict. Some communities have provided storage boxes to provide for the use of portable pickleball nets that can run cross-court, creating multiple pickleball courts on one tennis court. This approach of creating shared courts is often seen in communities where there is capacity for added use due to lower demand for tennis. Where tennis
demand is significantly lower, some courts are permanently converted to pickleball.
Compared to tennis, which is generally played with two or four players, a group of 16 pickleball players can occupy the same amount of court space.
The provision of purpose-built dedicated pickleball courts is also becoming more common, either through new construction or the permanent conversion of tennis courts.
Multi-court complexes of 4 to 16 courts (accompanied by access to parking,
washrooms, and shade) are becoming commonplace, often in partnership with local pickleball clubs.
Increasingly, municipalities have cited problems with pickleball courts being located too close to residential areas due to both the racquet noise and the social nature of the
game. There have been successful court challenges in Ontario that have resulted in
pickleball activity being eliminated from various locations. A recent acoustics study evaluated potential setbacks and noise attenuation measures for pickleball (e.g., earth berms, engineered barriers, etc.). Recommendations for residential setbacks ranged from 30 to 160 metres depending on the use of noise barriers and the nature of terrain
between the courts and residences.27 The lower end of this range represents a location that consists of a small number of courts, noise barriers, and intervening terrain that is acoustically soft (e.g., grass).
Lastly, the private sector has generally been responsive to pickleball, recognizing that it is an emerging market and potential revenue stream. Many tennis clubs have begun
offering pickleball and most are having difficulty keeping up with demand. Operators are also starting to convert warehouses and under-utilized retail spaces into pickleball hubs offering professional instruction and leagues.
27 Pickleball BC. A Guide to Pickleball Court Planning and Operation. (2023) https://www.pickleballbc.ca/uploads/1/4/2/5/142597665/pbc_court_guidelines__r1[1]_sept_30_2023.pdf
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Community Engagement
Interest in more pickleball courts – especially dedicated times and/or dedicated courts – was expressed through all facets of the public consultation program
The community survey found that 14% of responding households participate in
pickleball (ranking 25 out of 41 activities) and 53% indicated support for more outdoor pickleball courts in Pickering (ranking 24 out of 36 facility types). Pickleball was amongst the most common responses when asked what programs or activities residents wanted to see more of in the city. Interest was lower from students, with 3%
indicating that they have played the sport in the last 12 months and 3% seeking more
outdoor courts.
11)Basketball Courts
Market Trends
The popularity of basketball is on the rise due to its affordability and growing appeal, with courts becoming a standard element of park design. Compared to some other
sports, basketball is easy to learn, safe, affordable, and can be played individually or in
small groups.
Outdoor basketball courts range from simple asphalt to high quality acrylic surfaces with lights for evening play. Some municipalities have had success with multi-use court templates that are designed to accommodate a variety of activities throughout the year
(e.g., ball hockey, futsal, ice skating, etc.).
Community Engagement
The community survey found that 11% of responding households participate in basketball (ranking 23 out of 41 activities) and 57% support more outdoor courts in Pickering (ranking 18 out of 36 facility types). Suggestions were received for basketball
courts that are safe and accessible for youth across the city, particularly for teenagers in
the Seaton area.
From the in-school youth engagement, outdoor basketball courts were the highest priority for elementary school students and the fifth highest priority for high school students. Through the youth survey, it was found that nearly one-quarter (23%) of youth
play basketball outdoors (ranking 12 out of 41 activities) and 27% would like to see
more courts (ranking 6 out of 36).
12)Splash Pads and Outdoor Aquatics
Market Trends
Splash pads have gained popularity in recent years, sought after by young families seeking affordable and accessible opportunities to cool down on a hot day. They
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provide opportunities for unstructured, spontaneous play, and are an ideal way to activate public spaces. Splash pads are best located at community parks as they serve multiple neighbourhoods and are complementary to other on-site amenities such as
parking, playgrounds, seating, and washrooms, although consideration is also given to
geographic accessibility.
Splash pads can vary with different components and spray functions to create unique and engaging experiences. There are three types of splash pads – freshwater (or flow through) systems that drain directly to municipal sewers (all of Pickering’s are flow
through systems); recirculating systems that filters, collects, treats, and re-uses the
splash pad water; and greywater systems that collects splash pad water for other public uses such as irrigating greenspaces and landscapes, as well as and watering gardens.
Community Engagement
Input from surveys, engagement boards, and open houses indicates that the community
is supportive of new or improved splash pads. Three-quarters (76%) of community
survey respondent support additional spending on more splash pads in Pickering, ranking 6 out of 36 facility types.
13)Outdoor Ice Rinks
Market Trends
Recreational skating outdoors is a Canadian tradition although the ability to maintain
outdoor rinks has become increasingly difficult due to warming climates. Natural ice
rinks are the most affordable method to build and maintain given that expenses are largely relegated to water and staff time. Consistently cold temperatures are required to provide a safe and level skating surface. However, municipalities across Ontario are experiencing increasingly warmer winters which is not suitable for outdoor skating since
maintenance is cumbersome when temperatures are near or above the freezing mark
during the winter. As a result of milder winters, municipalities are forced to shorten skating seasons and, in some cases, outdoor rinks are closed completely. For example, local outdoor rinks were operational for only three days in 2023 due to above-average winter temperatures and thus were not able to deliver value in relation to the operational
costs of setting up and maintaining the rinks.
Alternatively, municipalities can construct refrigerated outdoor rinks or skating trails although this approach requires a greater upfront capital expenditure due to the mechanical infrastructure along with associated operating costs. In addition to cost challenges, there are other limiting factors specific to outdoor ice rinks including safety
and liability concerns, proximity to residences, less daylight in the winter, having
electrical and water services in place, etc. However, outdoor skating opportunities can enhance social connections among individuals during the winter months when people tend to spend more time indoors, thereby allowing the community to come together and provide passive recreation activities in a convenient, drop-in manner.
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Community Engagement
Despite only 16% of households responding to the community survey indicating that they participate in ice sports and recreational skating (ranking 17 out of 41 activities),
75% of all respondents support the City spending additional funds to provide more
outdoor skating rinks in Pickering (ranked 7 out of 36 facility types). Lower support was expressed through the youth survey, with 17% of respondents wanting to see more outdoor rinks provided.
14)Skateboard Parks
Market Trends
All-wheels parks (skateboarding, scootering, BMX biking, inline skating), skateboard
parks, and pump tracks are now a standard level of service in most municipalities. They respond to increasing interest in unstructured, low-cost activities and support physical activity. Participation in these sports has a broad appeal to both youth and young adults, as well as an emerging market for young families. For many youth, action sports are an
outlet for self-expression and an opportunity to find a sense of belonging that they
cannot get elsewhere. By their very nature, action sports build independence and resilience.
Skateboard parks take many forms and formats depending upon their intended type of use, skill level, and fit within a park and its surrounding land uses. Many parks are
designed to accommodate not only skateboards, but a growing number of two-wheel
scooters, in-line skaters, BMX users, etc. Scooters are now the predominant type of equipment seen at many skate parks.
Community Engagement
The youth survey found moderate support for expanded skate park opportunities:
•11% indicated they participate in skateboarding or scootering, which ranked 25out of 41 activities (compared to 8% of households, ranking 31st on thecommunity-wide survey).
•12% indicated they would like to see more skateboard parks offered in Pickering,
which ranked 21 out of 36 facility types (compared to 45% of households, ranking29th on the community-wide survey).
•Amongst elementary school students, skateboard parks were the eighth most
supported facility type.
Through focus group workshops, skateboarding was identified to have seen a notable increase in participation since the pandemic. Facility needs addressed by user groups included continued expansion of the skatepark network through new locations, as well as consideration of pump tracks and skate dots at existing parks.
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15)Playgrounds
Market Trends
Playgrounds can be found in nearly all park types. They provide amenities that benefit childhood development, foster cognitive development and social skills, and encourage
physical activity. Playgrounds are typically provided within walking distance of major
residential areas (5-to-10-minute walk), without having to cross major barriers such as arterial roads, highways, railways, and waterbodies. Traditional playground equipment generally consists of swings, slides, and an array of climbing structures designed to offer creative and unique play experiences. Accessible playgrounds and playground
components are also becoming standard elements in locations such as community
parks – the City has recently converted several playgrounds over to rubber tile surfacing to improve accessibility.
Additionally, natural and adventure playgrounds are becoming more popular around the world. Using the existing landscape and materials such as wood, logs, ropes, stones,
and boulders, these playgrounds create more daring opportunities and are proven to
stimulate greater sensory and imaginative play compared to traditional plastic structures. Natural playgrounds are designed in compliance with provincial standards but appear more precarious, which aligns to the concept of “risky play” to encourage imagination, decision-making, and resiliency amongst children. These installations
typically require less maintenance and receive less vandalism than traditional play
structures. The City is considering the installation of a natural playground at Whitevale Park in 2024.
Community Engagement
There is strong public support for enhancing the supply and quality of Pickering’s
playgrounds. The community survey found that 35% of responding households use
playground equipment (ranking 5 out of 41 activities) and 81% support the City spending additional funds to provide more playgrounds in Pickering (ranking 2 out of 36 facility types). High usage rates and priorities were also found amongst elementary school and secondary school students. Suggestions from the open houses included
providing more unique, larger, and accessible playgrounds.
16)Outdoor Fitness Equipment
Market Trends
Popular throughout the United States and Europe, Canadian municipalities have begun introducing outdoor fitness equipment that allow people to participate in free outdoor activities and engage more people in the public realm. During the pandemic, interest in outdoor unstructured recreation activities soared, making outdoor fitness an important
option for many.
E-20 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Outdoor fitness stations can be used by teenagers, adults, and seniors. Experience in other area municipalities suggests that their appeal is strongest with active older adults and seniors (particularly new Canadians), an age group that will increase over the study
period. These stations can provide several benefits, from improved balance, speed, and
coordination to reduced isolation and associated mood ills like depression.
Community Engagement
While interest in more fitness and wellness activities was expressed through the public open houses, demand was higher for indoor opportunities than outdoor. The community
survey found that 57% of respondents support more outdoor fitness equipment or
exercise areas in Pickering, which ranked 18 out of 36 facility types.
17)Community Gardens
Market Trends
Community gardens are sites located on City-owned or leased/licensed lands that are approved to be divided into plots and operated by a community garden committee for a
community garden group to grow produce, herbs, and flowers for not-for-profit use.
Interest is rising for improved food security, affordability, and healthy food options. Community gardens are integral to building a healthy, sustainable city with a strong, resilient food system.
Community food gardens play a valuable role in the City. These unique spaces have
many benefits for participants including:
•allowing residents to grow fresh, healthy produce;
•reducing family grocery bills;
•creating pride and knowledge of where the organic produce came from;
•increasing local food security;
•growing food for the local food bank;
•providing opportunities for gardeners to interact with people from their communitythey may have otherwise not met; and
•providing locations where residents of all ages and cultures can come together to
enhance spaces in their community.
Smaller residential lots (and more multi-use buildings) are leading to fewer opportunities for backyard gardens, creating greater demand for community plots. Under-utilized portions of City parks or other lands can be used for gardens if they have the necessary
infrastructure and community support. Raised garden beds for greater accessibility are
one of the key elements to consider in their design.
The City has long recognized the importance of urban agriculture in addressing food supply, food security, and sustainable urban development, which reduces carbon emissions and provides opportunities for social interaction and community cohesion.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) E-21
The City has implemented initiatives tailored to support urban agriculture, including (but not limited to):
• Supporting Official Plan policies and zoning provisions that encourage community gardens in all land use categories and zones.
• Approving a Community Garden Policy (ADM 240) to provide a framework for the
City to work with Community Groups on future community garden sites on municipally owned, leased/licensed land.
• Coordinating annual in-person and virtual educational workshops and webinars. These sessions increase awareness about the benefits of growing food and teach residents how to grow food regardless of the size of their space, e.g., plot
gardens, container and balcony gardening.
• Hosting an award-winning City Centre Farmers’ Market, through which the City
provides access to locally grown fresh produce, as well as supports local small businesses.
• Providing funds through the City’s Environmental School Grant and Community Grant. These grants provide funds that have helped schools, Valley Plentiful Community Garden (VPCG) and not-for-profit groups implement urban
agriculture initiatives.
• Working with the VPCG committee to facilitate the operation of a large-scale community garden (over 100 plots).
• Working with builders for new development in the City to encourage community gardens on private lands. • Advocating for community gardens within the City’s draft Comprehensive Zoning By-law and the Region of Durham Meadoway Study.
Community Engagement
Of the community survey’s respondents, 65% indicated they support the City spending additional funds to provide more community vegetable gardens in Pickering, which ranked 11 out of 36 facility types. The addition of community gardens including orchards, herb gardens, and nut trees was suggested at the public open houses.
18) Off-Leash Dog Areas
Market Trends
With by-laws regulating the use of leashes, off-leash dog areas provide owners an
opportunity to exercise and socialize with their dogs in a controlled area. Off-leash dog areas should not be viewed strictly for pets as best practices suggest that they are also beneficial for residents and community interaction among those who share a common interest. Off-leash dog areas have proven to be very successful, particularly in highly
urbanized communities that tend to have several such facilities as opportunities for dogs
to run freely may be limited.
For many municipalities, off-leash dog areas can be opportunities for community organizations or the private sector to get involved through assisting with operations,
E-22 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
fundraising or partnerships. While off-leash dog areas are popular amenities for pet owners, finding the right site for the development of new locations can be a challenge due to noise concerns. Careful consideration, planning and consultation is a best
practice when identifying new off-leash locations with consideration given to a range of
factors. As a best practice, municipalities should evaluate factors, including, but not limited to, setback and layout requirements, accessibility, site buffers, impact on the natural environment, future development potential, compatibility with other users, and more.
Community Engagement
Nearly one-half (46%) of community survey respondents support more off-leash dog areas in Pickering, which ranked 28 out of 36 facility types. Suggestions were also received on the engagement boards for additional dog parks.
19) Outdoor Event Spaces
Market Trends
Outdoor and unstructured activities have grown in popularity since the pandemic.
Communities are responding to this demand by enhancing locations (or partnering with other landowners) to provide festival and outdoor event space oriented to community-based event organizers.
Smaller-scale, locally-organized outdoor events are another effective approach for
communities to stay engaged. These events are inclusive and often express the culture
of a community. Locations can be created through tactical urbanism approaches, a typically low-cost model involving temporary pop-up initiatives to help test out concepts or projects. Another option is the creation of a community events hub, such as The Exchange in the City of Niagara Falls, which is a multi-purpose event space that
provides shared spaces for local artists, businesses, musicians, food vendors and
patrons. Interest in indoor space that can be used in the event of inclement weather is a common request.
Community Engagement
The consultation program for the Ten Year Plan found strong interest in outdoor spaces
and amenities, including open space to support events. At least one of four (28%)
community survey respondents indicated they participate in special events outside of Pickering. Year-round special events and festivals in Pickering were identified as a top priority amongst public open house and engagement board participants.
Stakeholder groups suggested there may be an opportunity for the City to leverage sites
that deliver a wide range of nature-based and educational programming. Groups such
as Petticoat Creek Conservation Park and other TRCA lands were identified as having significant capacity to host more events and programming.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) E-23
20)Parkland Provision and Use Trends
Access to outdoor space matters as parks are increasingly being seen as critical social, health, and environmental infrastructure. Green spaces in urbanized areas often offer places of respite and improve air quality, provide venues for physical activity, and
conserve natural and cultural heritage landscapes.
This section identifies several trends that are influencing the demand for and delivery of parks in Canadian municipalities. These trends should be considered alongside other study inputs to inform future strategies.
Parks Support Physical and Mental Wellness
For many, municipal parks services provide critical supports to maintain personal health
and physical activity by addressing inactivity levels, social isolation, stress and anxiety. Access to outdoor spaces, physical literacy, and affordable, accessible leisure activities are key determinants in engaging people in active recreation.
The large majority (82%) of Canadians said that parks and outdoor spaces have
become more important to their mental health during COVID-19 and 70% indicated that
their appreciation for parks and green spaces had increased during the pandemic28.
There is evidence that larger parks have a more direct impact on physical activity as they have the space to accommodate a wider variety of amenities and experiences. Proximity to parks and facilities is also correlated with higher levels of physical activity.29
Dog ownership is often linked to higher levels of activity and social engagement,
providing support to pet-friendly public spaces.
Parks Support Active Transportation
Active transportation offers many personal health and wellness benefits and is a core element of complete communities. During the pandemic, municipalities observed a
surge in recreational trail use as residents participated close-to-home and sought
connections with nature. Expanded use of these networks can be expected to continue –interest in bike lanes, off-road trails and cycling infrastructure are common requests inmost communities. Active transportation is environmentally-friendly as it reduces roadcongestion and vehicle-related greenhouse gas emissions.
Parks Build Resilience to Climate Change
The many environmental benefits of parks and public spaces – such as reducing the urban heat island effect, mitigating flooding, and improving air quality – illustrate the critical importance of their role as public infrastructure and lend support for further
28 Park People. COVID-19 and Parks Survey. July 2020. https://parkpeople.ca/2020/07/16/covid-19-and-parks-highlights-from-our-national-surveys
29 Urban Institute. The Health Benefits of Parks and their Economic Impacts: A Review of Literature. February 2022.
E-24 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
investment. Parks are increasingly helping communities achieve their environmental goals by offering more naturalized spaces close to where people live, and contributing to climate resilience and urban biodiversity.
Already thought of as “green infrastructure”, parks are being positioned to be more
environmentally sustainable through reducing grass cutting and naturalization initiatives, planting of native species, tree canopy targets, and programs that educate about local natural heritage features (e.g., outdoor classrooms or interpretive signage). More communities are also experimenting by piloting new approaches in parks, such as
bioswales, rain gardens, pollinator gardens, habitat restoration, and biodiversity
initiatives.
Parks and Outdoor Recreation were Rediscovered During the Pandemic
Communities witnessed increased park use and demand for unstructured outdoor recreation activities within parks and trails during the COVID-19 pandemic as people
found or rediscovered new ways to remain active and connected. Parks were
increasingly used as “outdoor living rooms” across all four seasons, strengthening connections with nature and introducing many people to new activities within their neighbourhood. Access to public spaces and programs is a fundamental service for Canadians and we are living in a time where we need more public space, not less.
Resident Expectations are Rising and Needs are Becoming more Sophisticated
As interest rises, residents are expecting more from their parks in terms of amenities and quality. Many communities are reimagining existing spaces in creative ways, such as car-free streets (or temporary street closures), outdoor workout areas, and open space enhancements that allow for creative programming and community interaction
(e.g., Wi-Fi in parks, increased seating options, creation of new activity zones, etc.).
Public demand is especially strong for year-round washrooms in parks and natural areas. Further, there continues to be great potential to animate unused or non-traditional outdoor spaces for community activities and nature-based programming. Municipalities must also consider higher standards for accessibility and inclusion.
Recent surveys have found that 87% of Canadians support more investment in parks,
including more places to experience nature close to home.30
Park Use is Changing
The variety of activities and sports available today is much broader than in the past and the popularity of recreation and sport activities are affected by a variety of socio-
demographic and lifestyle trends. Many of these new recreational pursuits have emerged in the past few decades that were never contemplated in the design of older parks.
30 Park People. https://parkpeople.ca/blog/park-people-parks-platform-2023-toronto-parks-as-core-urban-infrastructure
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) E-25
In general, there has been a shift toward multi-use, multi-purpose experiences within parks. People are choosing more informal and individual recreation activities that are more convenient and affordable. Activities and spaces such as pickleball, cricket, off-
leash dog areas, splash pads, sport courts, disc golf, skateboarding and BMX biking,
outdoor skating, public fitness, challenge courses and adventure play, community gardens, and trails are increasing in demand. Casual group spaces for diverse exercise and recreation experiences are growing in popularity (e.g., tai chi, BBQ pits, picnic spaces, etc.), as are demands for more special events (both small and large).
Park Activation and Year-Round Programming
Municipalities across Canada are experiencing increased demand for “activation” and programming in parks, such as social gatherings, community events, art displays, movie nights and more. During the pandemic, many indoor events were moved outdoors, helping to expand the scope of use and engaging a broader range of residents and
visitors, leading to experiential learning, participation, and community mobilization. Non-
programmed facilities oriented to social interaction and gathering can also draw people from their homes and into the park setting.
Land Assembly Challenges
As municipalities continue to grow inwards and upwards, it has become more
challenging to assemble parkland in mixed use areas due to land scarcity and land cost.
Specifically, areas of residential intensification generate less parkland per capita than greenfield development – and smaller park blocks – making it difficult to accommodate the desired recreational activities that residents have come to expect from the City’s parks system. The challenges have become more acute through recent changes to the
Planning Act as municipalities have lost significant potential revenue that could have
been dedicated to purchasing and/or developing quality parks.
Rising Costs of Land and Park Development
Land values have exploded in recent years, making it more difficult for municipalities to purchase land for parks using reserve funds. Considerable purchasing power can be
lost as municipalities accrue these funds to use on strategic acquisitions. The cost of
park construction and materials are also rising, leading to project deferrals and delays as municipalities bolster funding or seek alternative approaches. These factors are also impacted by provincial changes to funding formulas (e.g., Development Charges, Community Benefits Charges, caps on cash-in-lieu of parkland, etc.) that are leading to
reductions in growth-related funding mechanisms.
Urban Park Types are Emerging
Urbanization generally means that parks are becoming smaller and non-traditional park-like spaces are beginning to emerge, often supported by partnerships and agreements. The increasing focus on the integration of “places” and “destinations” through urban
design practices seeks to create comfortable, connected, flexible, and sustainable
streetscapes. High quality park development can increase the attractiveness and
E-26 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
marketability of new development areas, while redevelopment of parkland can similarly act as a catalyst for revitalizing established neighbourhoods. Additionally, investments in urban parks can also result in positive economic impacts, although it is noted that
construction costs of urban/hardscape parks are quite significantly greater than
traditional neighbourhood parks.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) F-1
Appendix F: Types of Partnerships and
Approaches to Evaluation
Many forms of partnerships may be considered by the City of Pickering for managing services and providing facilities. The most prevalent is partnerships that advance specific social issues and broader goals, such as capital arrangement regarding facility
development. Using the appropriate partnership arrangement or combination of options
should be an informed choice.
Partnership examples in a recreation and parks context include:
a) Public/Public Partnerships – Service delivery and/or the joint work to address social issues with other publicly funded organizations.
b) Public/Not for Profit Partnerships – Joint arrangements with non-profit
organizations.
c) Public/Private Partnerships – Joint arrangement where costs and risks are shared.
d) Joint Service Delivery – A service provided by two parties, each contributing
some resources.
e) Service Contracts – The service provider manages a particular aspect of a municipal services. The requirements are specific and service levels are articulated in a service contract often predicated through a competitive process.
f) Management Contract – The provider is accountable to manage all aspects of a
municipal services. This may or may not include capital investment and is
administered through a competitive process and a contract arrangement.
g) Lease / License – A lease or license arrangement turns the responsibility and accountability for a municipal asset to one or more service providers. A rental agreement is put in place with deliverables and compliance issues in exchange
for payment to the municipality.
To be effective, partnerships must be strategic and work toward specific goals in the delivery of service. Specific to recreation and parks, partnerships are a way of including more residents in active and outdoor pursuits and expanding service delivery affordably.
Partnerships are currently assessed on a case-by-case basis and projects that increase
access to public services and space for all are encouraged. Guidance is needed to
establish a consistent and uniform municipal response to potential relationships with those wishing to partner with the City on facility development or program delivery.
A standardized partnership framework could set out why and how the City plans to work with others in fulfilling its mandate and the parameters for these relationships. The
standardized partnership framework on the following page may be adapted by the City
to evaluate potential partnerships and/or unsolicited proposals.
F-2 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Standardized Partnership Framework
Criteria Yes No Response
Is the initiative consistent with the municipal mandate and service
philosophy?
Do not consider municipal involvement in the project.
Is there a municipal role to play in providing the program or service? Do not consider municipal involvement in the project.
Is there a demonstrated need for the proposed service or program? Do not consider municipal involvement in the project.
Does the proposed service or initiative conform to municipal priorities and is it in operating and capital budget forecasts?
Either do not consider municipal involvement in the project or consider
alternate forms of capital financing or ongoing funding sources.
Can requirements ensure compliance with the department’s vision, mandate, values, strategic priorities and service standards?
Consider providing the service using a
traditional municipal self-managed approach (direct delivery).
Can financial risks be reasonably mitigated through an arrangement with the group(s)? Consider providing the service using a traditional municipal self-managed approach (direct delivery).
Are there suitably equipped and properly qualified organizations who can contribute or provide the
service or program?
Consider providing the service using a traditional municipal self managed approach (direct delivery).
Can responsibility of the delivery of
the service or program be assigned to another organization while mitigating all risks to the organization?
Issue a request for proposal or other
procurement process specified by purchasing policies.
Is there consensus regarding the terms, conditions, standards of delivery and accountabilities? Negotiate a mutually acceptable operating agreement and monitoring of performance standards.
Establish a relationship with an outside entity to develop the facility or delivery the program or service and adopt a mutually agreeable monitoring system.
Source: Adapted from various municipal recreation plans
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) G-1
Appendix G: Description of Existing Park
Types
City of Pickering Parks Hierarchy, Existing (Source: Picketing Official Plan, Edition 9)
Park Type Relevant Policy – Official Plan
District Park
District Parks are intended to provide for a range of illuminated recreational facilities.
Note: These are the largest active recreational park type (generally 50
hectares or greater). The City’s Official Plan currently only identifies one such site as a District Park (north of Green River), which is designated for future development.
Community Parks
Community parks are intended to provide for a range of illuminated
recreational facilities as well as some non-illuminated mini-baseball and soccer fields servicing the adjacent residents.
Community parks and recreation centres shall be located near frequent
transit services.
Adjacent natural heritage system lands are intended to be an integral part of each community park providing for passive recreational areas and buffer areas adjacent to the recreational fields.
Note: The Official Plan does not define a minimum size for these parks, but it is recommended that they generally be a minimum of 4 hectares.
Neighbourhoods Parks
Neighbourhood Parks are intended to perform an array of functions and
accommodate play structures as well as one non-illuminated mini-recreational field and possibly tennis or bocce courts, and passive areas.
Neighbourhood Plans shall:
(i) be easily accessible and generally centrally located for residentswithin a 400 to 800 metre radius (5 to 10 minute walk);
(ii) have a size of approximately 1.5 hectares to 1.8 hectares;
(iii) have road frontage on a minimum of two sides, where possible; and
(iv) be supported by on-street parking.
G-2 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Park Type Relevant Policy – Official Plan
Village Greens
Village Greens are intended to provide greenspace for each neighbourhood and accommodate play structures and open informal play areas.
Village Greens are smaller components of the open space system and
shall:
(i) have a size of approximately 0.3 to 0.6 hectares subject todemonstration of the functionality of the village green configuration;
(ii) be easily accessible for residents within a 200 to 400 metre radius (3to 5 minute walk) without the need to cross arterial roads; and
(iii) have road frontage on three sides, but may be less where otherdesign alternatives are used to achieve public view and access;
Urban Squares
Urban Squares are intended as formal pedestrian spaces, in support of the adjacent higher density, mixed use development.
Urban Squares shall be provided within the commercial and mixed use
components of the Community Nodes and Mixed Corridors and shall:
(i) be located to provide easy access and multiple opportunities for rest,relaxation and visual interest;
(ii) be provided in a location determined in consultation with City staff atsite plan approval;
(iii) generally have a minimum frontage on the abutting sidewalk of 5.0metres, and a minimum depth of 5.0 metres; (ed. note: these sizes are
quite small and may be reconsidered through the Official Plan Review)
(iv) on large development parcels include a single, large-scale urbansquare and/or a series of smaller urban squares;
(v) count as part of the block face in calculating the minimum block facerequirement as per Section 11.8(e) of the Official Plan;
(vi) contribute to the required parkland dedication, whether or not theland is dedicated to the City, provided an agreement is executedbetween the City and landowner which ensures that:
(1) the urban square is designed and built by the landowner to thesatisfaction of the City;
(2) the urban square is maintained by the landowner to the satisfaction ofthe City; and
(3) the owner(s) and/or the condominium corporation is made aware that
the urban square is to be considered as a public space and is to be openand accessible to the public at all times.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) H-1
Appendix H: Parkland Policy Background
Parkland Policy Jurisdictional Scan
A comparative analysis of three other Greater Toronto Area municipalities was undertaken to inform the analysis of Pickering’s parkland policies and approaches.
Municipalities included the Town of Oakville, City of Vaughan, and Town of Markham –
all three of these communities have recently completed a series of comprehensive parkland assessments that have supported updated planning policies and approaches.
The exercise included research into the following items, with information culled from official plans, parks plans, and parkland by-laws or procedures:
•parkland hierarchy;
•parkland targets;
•parkland acceptability;
•encumbered parkland and ownership; and
•parkland cash-in-lieu policies.
Note: The summaries below are paraphrased. For additional information, specific reference should be made to the applicable by-laws, procedures, or studies.
Jurisdictional Scan – Parkland Hierarchy
Municipality Summary of Parkland Hierarchy
Town of Oakville The Town has adopted a two tier parkland hierarchy. Sizes, catchment areas, uses/functions, and general design guidelines are identified for each.
Traditional Hierarchy – Established Neighbourhoods and Greenfields:
•Community Parks
•Neighbourhood Parks
•Parkettes
•Eco Parks (new)
Urban Hierarchy – Strategic Growth Areas:
•Public Commons
•Urban Squares
•Promenades
•Other Urban Parks (Connecting Links, Pocket Parks, Sliver Parks)
Additional classifications are identified for passive parkland and open space.
H-2 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Municipality Summary of Parkland Hierarchy
City of Vaughan The City has adopted a two tier parkland hierarchy. Sizes, catchment areas,
uses/functions, and general design guidelines are identified for each.
Traditional Residential Communities and Delineated Greenfield Residential Communities:
•Regional Parks
•District Parks
•Neighbourhood Parks
Strategic Growth Areas
•Urban Parks
•Public Squares
•Public Commons (new)
•Promenades (active transportation component; not accepted asparkland dedication)
New park typologies to be considered, subject to further review and criteria, include:
•Eco-Parks that support environmental education and nature-relatedrecreation
•Parkettes to support the social fabric within traditional greenfieldresidential communities by providing parkland within a 5-minute walkfrom home
City of Markham City Park Classifications:
•Community Parks
•Neighbourhood Parks
o Active ParksoUrban SquaresoParkettes
o Urban Parkettes
•Open Space Lands (not accepted as parkland dedication)
Sizes, catchment areas, uses/functions, and general design guidelines are identified in the Official Plan for each park type.
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Jurisdictional Scan – Parkland Targets
Municipality Summary of Parkland Targets
Town of Oakville Townwide target of 2.2 ha/1000 persons to the horizon year of 2031. Note: The definition of parkland has recently been broadened to include unconstrained lands in the natural heritage system.
Minimum of 12% of the Gross Land Area within Strategic Growth Area, such that all residents are within a 2.5 minute walk (200 metres) from a defined Public Common, Urban Square or Promenade.
City of Vaughan Citywide target of 2.0 ha/1000 persons. Note: The definition of parkland has
recently been broadened to include unconstrained lands in the natural heritage system.
Prior to the introduction of Bill 23, the City gave consideration to designating a 20% Gross Land Area parkland requirement within a comprehensively planned intensification area.
City of Markham Citywide target of 1.2 ha/1000 persons.
A target of 0.4 ha/1000 persons has been established for intensification areas,
with the balance of needs being accommodated outside of the area.
Note: The City has adopted a reduced alternative rate of 0.55 ha/500 units for medium and high density residential apartments.
H-4 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Jurisdictional Scan – Parkland Acceptability
Municipality Summary of Parkland Acceptability
Town of Oakville Lands must be in a condition satisfactory to the town and in accordance with the requirements of the town’s Official Plan…Lands shall be free of any/all title encumbrances.
Potentially acceptable lands for parkland dedication (accepted at a reduced rate) include:
•Lands that are subject to a Strata Park arrangement;
•Privately Owned Public Spaces (POPs) where located within a SGA
subject to required legal agreements;
•Lands that are within the designated Natural Heritage System, but are not
specifically identified as a core natural feature;
•Lands that include slopes between 5 percent and 15 percent, that are not
included within the Natural Heritage System; and/or,
•Lands that include designated cultural heritage resources or culturalheritage landscapes.
Unacceptable lands for parkland dedication include:
•Lands that are an identified core natural heritage feature as defined in theOfficial Plan, or an applicable Secondary Plan, or as identified in anEnvironmental Impact Study accepted by the town;
•Lands that are identified as Hazard Lands, have poor drainage, erosionissues, extreme slopes (greater than 15 per cent) or other environmental
or physical conditions that would interfere with the lands potentialdevelopment or use as a public park;
•Lands that are required to accommodate storm water managementfacilities. And, where lands for parks purposes include stormwatermanagement facilities, that portion of the land that includes a stormwater
management facility shall not be included in the area calculation forparkland conveyance;
•Lands that are deemed to be contaminated in any way;
•Lands used for utility corridors or any other infrastructure; and/or,
•Lands that are encumbered by easements or similar legal instruments thatprohibit public use.
City of Vaughan Lands must be permit-ready for public programming, designed and developable to City standards, open and accessible to the public at all times,
and meet requirements of applicable legislation and polices.
Council may accept off-site land dedication.
Unacceptable lands include lands:
•with poor drainage, erosion issues, extreme slopes and other adversephysical conditions;
•with open storm water management facilities;
•deemed by the City to be contaminated in any way; and
•that prohibit or restrict public programming.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) H-5
Municipality Summary of Parkland Acceptability
City of Markham Parks shall generally:
•have frontage on one or more public streets or publicly accessible privatestreets;
•serve park users within a 2 to 10 minute walk from residential and mixed-use neighbourhoods;
•not be encumbered by driveways, access lanes, garbage storage areas,utility vaults or other such uses that would take away from the enjoymentor use of the park; and
•be recognizable by the park user as a public and publicly accessible park.
Table 46: Jurisdictional Scan – Encumbered Parkland & Ownership
Municipality Summary of Encumbered Parkland Policies
Town of Oakville Within all areas, the town will consider Strata Ownership under the Ontario Condominium Act for Neighbourhood Parks and Parkettes, subject to a land area discount, in recognition of lifecycle cost issues, to the satisfaction of the town.
Within Strategic Growth Areas, the town may augment the urban parkland
system with Privately Owned Public Spaces (POPs). The town may consider providing parkland dedication credit, where the following criteria are met, to the satisfaction of the town:
•It is an integral element, and is directly connected to the broader urbanparkland system and the adjacent public sidewalk system;
•It can be defined only as an Other Urban Park element, and is not a PublicCommon, Urban Square, or Promenade;
•An appropriate legal agreement has been established between the ownerand the town that guarantees that the space is designed, built andmaintained to town standards, and is open and accessible to the public atall times (or as otherwise to the satisfaction of the town); and,
•The land area of the POPs is appropriately discounted, in recognition ofthe town’s lack of programming control, to the satisfaction of the town. Theactual amount of the land area discount shall be determined on a case-by-case basis, at the sole discretion of, and to the satisfaction of the town.
City of Vaughan The City’s 2022 By-law allows for the dedication for land for passive recreation uses. Acceptable lands (full credit) for parkland dedication include: strata parks; land encumbered by underground storm water facilities, utility corridors, and other publicly owned infrastructure; land that forms part of the Natural
Heritage Network and associated buffers; land encumbered by floodplains or sustainability features; and land within the Greenbelt or Oak Ridges Moraine. Agreements may be required for such lands.
The By-law also allows Council the discretion to accept privately owned public space (POPs) at full credit, subject to an agreement with the City.
H-6 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Municipality Summary of Encumbered Parkland Policies
City of Markham The City may accept parkland where the ownership of the land is stratified or
where the parkland is encumbered, including by underground structures. Typically, strata parks are located in mixed-use neighbourhoods in the form of a Neighbourhood Park such as an Urban Square or Urban Parkette. The value
of the contribution to the parkland conveyance of any strata park shall be discounted at the discretion of the City.
Table 47: Jurisdictional Scan – Parkland Cash in Lieu Policies
Municipality Summary of Parkland Cash in Lieu Policies
Town of Oakville First priority is fee simple (municipal ownership).
The town anticipates that approximately 25% of the land or cash in lieu within Strategic Growth Areas will be acquired within the area where it was generated. The remaining 75% generated through parkland dedication will be allocated elsewhere within the town in accordance with its parkland dedication procedure.
Within the established neighbourhoods and Greenfield communities, land dedication shall always be the first priority.
The Town does not use a per unit fee for calculating parkland dedication amounts, rather bases the amount of land appraisals coordinated through Realty Services, at the cost of the owner.
Cash in lieu funds are allocated as follows:
•First priority is the acquisition of parkland on the subject site.
•Second priority is the acquisition of parkland within 400 metres of thesubject site.
•Third priority is the acquisition of parkland anywhere in the town.
•Fourth priority is the acquisition of lands for pathways, trails and
associated infrastructure throughout the town (with a focus on missinglinks), the erection, improvement, or repair of buildings used for park orother public recreational purposes, and/or the acquisition of vehicles andequipment used for parks maintenance or other public recreationalpurposes.
City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft) H-7
Municipality Summary of Parkland Cash in Lieu Policies
City of Vaughan First priority is fee simple (municipal ownership).
At its discretion, the City may allow for payment in lieu where no reasonable prospect for land dedication exists, including
•where land conveyance would render the remaining portion of the subjectlands unsuitable or impractical for development or redevelopment;
•where the amount of land conveyance does not meet the City’s OfficialPlan definitions of parklands or provide a parkland configurationacceptable to the City; or
•where existing parks and other recreational spaces are available anddeemed sufficient by the City
Per unit cash in lieu fees for stand-alone residential additions and multi-unit residential buildings are established within the by-law, with increases phased in annually until 2025. For multi-unit buildings, these fees will increase from
$11,300 per unit in 2022 to $27,994 per unit in March 2025.
The use of cash-in-lieu funding is prioritized at the City’s discretion to support the acquisition of additional land and/or the completion of park enhancements
or park redevelopment to meet the City’s parkland objectives.
City of Markham Instances where payment in lieu of parkland are not identified within the City’s Parkland By-law.
The citywide average per unit charge for all residential types is approximately $33,200.
H-8 City of Pickering: Recreation & Parks – Ten Year Plan | May 2024 (Draft)
Parkland Dedication Scenarios under the Planning Act
Parkland Dedication Scenarios under the Planning Act, 5-hectare development site
Units per Hectare
Total Units (5-hectare site)
Estimated Persons per Unit Total Persons Dedication Rate Applied
Parkland Dedication or Cash-in-Lieu
Hectares per 1,000 residents
15 75 3.4 255 Standard Rate
0.25 ha (land or CIL) 0.98 ha/1000
30 150 3.2 480 (5% of site) 0.25 ha (land
or CIL)
0.52 ha/1000
50 250 3.0 750
Alternative
0.42 ha (land) or
0.25 ha (CIL)
0.56 ha/1000
100 500 2.2 1,100
Rate 0.5 ha (land – capped) or 0.5
ha (CIL)
0.45 ha/1000
150 750 2.0 1,500 (1ha:600 units
or 1ha:1000
0.5 ha (land – capped) or 0.5
ha (CIL)
0.33 ha/1000
250 1,250 1.8 2,250
units CIL) 0.5 ha (land – capped) or 0.5
ha (CIL)
0.22 ha/1000
Note: Parkland dedication is capped at 10% of the land or value of the land for development or redevelopment sites that are five hectares or less.
Parkland Dedication Scenarios under the Planning Act, 10-hectare development site
Units per Hectare
Total Units (10-hectare site)
Estimated Persons per Unit Total Persons Dedication Rate Applied
Parkland Dedication or Cash-in-Lieu
Hectares per 1,000 residents
15 150 3.4 510 Standard Rate
0.5 ha (land or CIL) 0.98 ha/1000
30 300 3.2 960 (5% of site) 0.5 ha (land or CIL) 0.52 ha/1000
50 500 3.0 1,500
Alternative
0.83 ha (land) or 0.5 ha (CIL)
0.56 ha/1000
100 1,000 2.2 2,200
Rate 1.5 ha (land – capped) or 1.0 ha (CIL)
0.68 ha/1000
150 1,500 2.0 3,000 (1ha:600 units or 1ha:1000
1.5 ha (land – capped) or 1.5 ha (CIL)
0.50 ha/1000
250 2.500 1.8 4,500
units CIL) 1.5 ha (land – capped) or 1.5 ha (CIL)
0.33 ha/1000
Note: Parkland dedication is capped at 15% of the land or value of the land for development or redevelopment sites that are greater than five hectares.
Arena Strategy
Recreation & Parks - Ten Year Plan
March 20, 2024 - Final DRAFT
��Monteith• Brownplanning consultants
Attachment 2 to Report CS 15-24
Arena Strategy
Recreation & Parks – Ten Year Plan
March 20, 2024 – Draft
City of Pickering Arena Strategy | March 2024 – Final Draft Page i
Table of Contents
Section Page
1.0 Introduction ...................................................................................... 1
1.1 Project Overview ........................................................................................ 1 1.2 Study Process ............................................................................................ 2
2.0 Existing Conditions .......................................................................... 3
2.1 Arena Inventory ......................................................................................... 3 2.2 Local Arena Utilization ............................................................................... 8 2.3 Local Participation ................................................................................... 11
2.4 Regional Arena Inventory ........................................................................ 13
2.5 Population Factors ................................................................................... 14 2.6 Arena Participation & Ice Sport Trends .................................................... 16 2.7 Arena Provision & Design Trends ............................................................ 21
3.0 Stakeholder Engagement ............................................................... 26
3.1 Input from Arena Organizations ............................................................... 26
3.2 Input from the Community ........................................................................ 29
3.3 Summary of Key Themes ........................................................................ 30
4.0 Operational Assessment................................................................ 32
4.1 Review of Existing Arena Condition & Operations ................................... 32 4.2 Recreational Skating Review ................................................................... 39
5.0 Arena Needs Assessment .............................................................. 41
5.1 Arena Needs ............................................................................................ 41 5.2 Considerations for a Multi-Purpose Event Arena ..................................... 46
5.3 Arena Provision Options .......................................................................... 48
6.0 Recommendations ......................................................................... 54
Appendix A: Typical Arena Facility Program ...................................... A-1
Limitations: This report was prepared by Monteith Brown Planning Consultants Ltd., Largo Facility Management, and MJMA Architecture & Design for the account of the City of Pickering. The material in this report reflects the consultant’s best judgment considering the information available to it at the time of
preparation. Any use which a third party makes of this report, or any reliance on or decisions to be made based on it, are the responsibility of such third parties. The consultants accept no responsibility for damages, if any, suffered by a third-party because of decisions made or actions based on this report.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 1
1.0 Introduction
1.1 Project Overview
The purpose of this Arena Strategy is to guide planning and inform decisions for Pickering’s arena system for the next 10 years (to the year 2034).
Specifically, the Strategy evaluates options for maintaining and/or reinvesting in Pickering’s two municipal arena facilities and examines growth-related needs to provide additional facilities into the future. These assessments are based on a comprehensive
analysis of background research, trends and best practices, demographics, and understanding of local and regional arena supply and usage levels. The Don Beer Arena is of specific focus to determine the future for this facility due to its life expectancy and the feasibility of this location.
The following objectives have been established for the Arena Strategy:
•Review background research including facility condition assessments, localdemographics, and other documents pertinent to the Arena Strategy.
•Consider arena trends such as ice sport participation, facility design, and
accessibility.
•Project future arena demand with consideration given to local and regionalsupply, distribution, utilization, operating performance, planned capitalinvestments, and the ability to serve current and future residents.
•Consult with local arena and indoor facility users, the public, City staff, andCouncil to gather input and feedback on current and future ice needs.
•Project future ice surface demand based on the items above and make
recommendations for major capital requirements over the next ten years.
The Strategy shares the same planning horizon as the City’s updated 2024 Recreation & Parks – Ten Year Plan. As part of the plan’s scheduled five-year update, the 2017 Master Plan recommended for an Arena Provision Strategy or comprehensive arena assessment to be prepared to determine whether a net expansion to the City’s supply of
ice pad and/or relocation of an existing ice pad(s) is warranted based on prevailing
market forces and arena operating conditions.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 2
1.2 Study Process
To achieve the Strategy’s objectives, a work plan was devised that involved public and stakeholder consultation, thorough background research, evidence-based needs assessment, and evaluation of options. All inputs from this process are represented
within this Strategy.
Figure 1: Arena Strategy Phasing
The demand analysis relies largely on data provided by the City of Pickering (usage data, registration figures, population projections, etc.) and stakeholder consultation, as well as trends in the sector.
Furthermore, because several local organizations have amalgamated with other centres
and have membership boundaries that extend beyond Pickering, arena participation and demand in Ajax is also examined at a high level to gain a more accurate understanding of local arena demand.
Outdoor skating facilities are not able to satisfy requirements for organized play and are beyond the scope of this analysis. They are examined further within the Recreation and
Parks Plan.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 3
2.0 Existing Conditions
The City of Pickering’s arena inventory is described in this section, along with other arenas in the region that may be used by local organizations. Local arena utilization and participation rate trends are also examined, as well as broader trends impacting ice sports.
2.1 Arena Inventory
The City owns and operates two (2) arena facilities containing a total of five (5) pads for
ice and dry floor uses. The Chestnut Hill Developments Recreation Complex (2 pads) and Don Beer Arena (3 pads) are shown on the map below along with other municipal recreation facilities within Pickering’s built-up area.
Figure 2: Arenas and Municipal Recreation Facilities, Built-up area of Pickering
Until 2019, the Art Thompson Iceplex (a privately-owned twin pad arena) was also available for rentals, largely being used for adult leagues. This facility has since been
closed and demolished. There are no longer any private arenas in Pickering.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 4
Chestnut Hill Developments Recreation Complex
The Chestnut Hill Developments Recreation Complex (CHDRC) is located at 1867 Valley Farm Road, just north of Highway 401 and in the Pickering City Centre,
surrounded by residential and commercial properties. The CHDRC is home to the
Delaney and O’Brien pads, which are co-located with other recreational amenities (e.g., indoor pool, fitness centre, racquet courts, multi-purpose rooms, etc.). Current rink dimensions are less than NHL standard 200 x 85 feet: Delaney Rink – 190 x 85 feet; O’Brien Rink – 185 x 85 feet.
The Delaney Rink was constructed in 1983 (renovated in 2015) and the O’Brien Rink in 1992; both share common amenities including change rooms, storage areas, referee and coach rooms, concessions, lobby entrance, and customer service reception area. It is worth noting that the rinks do not share refrigeration systems and each ice rink has its own dedicated refrigeration plant room.
The Delaney Rink has seating for approximately 850 spectators. The seating capacity appears to currently serve the needs of the associations and teams currently playing at this rink – this pad is predominately used by the Pickering Panthers ice hockey team and the Pickering Skating Club.
The O’Brien Rink has a seating capacity of approximately 200. Again, this smaller
capacity seems to work well for the associations and teams that use this ice pad – this rink is used mainly by Durham West Girls Hockey and the Ajax Pickering Ringette Association. Summer ice is only offered at O’Brien.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 5
Figure 3: Delaney and O’Brien Rinks – Chestnut Hill Developments Recreation Complex
City of Pickering Arena Strategy | March 2024 – Final Draft Page 6
Don Beer Arena
Don Beer Arena provides three (3) pads and is located south of Highway 401 in the City’s Brock industrial and light commercial neighbourhood (940 Dillingham Road). The
facility is also used for ball hockey and lacrosse in the summer months. The original pad
was built in 1967, a second rink added in 1972, and expanded to include a third ice pad in 2003. Accessibility and green improvements were undertaken in 2011, marking the last major renovation. Each ice pad is supported by amenities including change rooms, referee/coach rooms, storage, spectator seating, and concessions. It is worth noting
that Rinks 1 and 2 share a refrigeration system, while Rink 3 has its own.
The facility does not offer the level of amenity or comforts that people are looking for in today’s recreational facilities such as walking tracks, larger dressing rooms, and extended heated viewing areas. Playing surfaces are not to today’s standards and all rinks are below a standard NHL size (200 x 85 feet). Current rink sizes are: Rink 1 –
185 x 85 feet; Rink 2 – 185 x 85 feet; and Rink 3 – 190 x 85 feet. Long term direction is
needed for the arena as there have been few recent investments into the facility and it is showing its age.
The facility’s location in an industrial area not on a public transit route also creates accessibility challenges for some users. Further, the arena is not part of a multi-use
facility like CHDRC, further limiting its appeal and efficiencies. Furthermore, the Don
Beer Arena parking lot is almost entirely situated on lands leased from Hydro One, which adds to the annual operating cost (the lease is approximately $100,000 annually and is subject to inflation indexing). Hydro One has also requested that the City of Pickering invest in a storm water collection program for the parking area, which will
prove to be an expensive endeavour. In speaking with City of Pickering staff, there is
currently no solution to rectify this issue due to design/capital costs and on-site logistical challenges. There are no funds identified currently in the capital budget to address this issue (estimated at $3+ million).
City of Pickering Arena Strategy | March 2024 – Final Draft Page 7
Figure 4: Don Beer Arena
City of Pickering Arena Strategy | March 2024 – Final Draft Page 8
2.2 Local Arena Utilization
The City’s Ice Allocation policy (prepared in 2013 and revised in 2018) contains several directives, including: (a) meeting the needs of existing users whenever possible; (b) maximizing the use of existing facilities; (c) maintaining a high level of fiscal
responsibility to the residents of Pickering; and (d) providing for the development of new
users and user groups. The policy applies to the weekly allocation of ice time, beginning on the 3rd Saturday of September and extending for 28 weeks. The policy aims to allocate ice times in an equitable, transparent, and consistent manner that prioritizes City program rentals, followed by affiliated organized minor and adult users, Junior A
teams, schools, and other users.
The designation of prime-time ice is determined by the City of Pickering and posted prior to the start of the ice allocation process for each coming season. Special event and tournament ice requests are limited to three consecutive days. Weighting factors for ice times are employed in the allocation process and are based on age, skill level,
number of players per team, and the number of teams on the ice. The policy states that
residency requirements may apply to the determination of ice allocation and that groups are required to submitted registration figures annually.
The City’s parameters for prime and non-prime time ice are defined below:
Table 1: City of Pickering Definition of Prime Time, Shoulder, and Non-Prime Time Hours
Days of the Week Prime Time Hours Non-Prime Time Hours Total
Monday to Friday 5:00 pm – 11:00 pm 6:00 am – 5:00 pm n/a
Saturday and Sunday 8:00 am – 9:00 pm 6:00 am – 8:00 am 9:00 pm – 11:00 pm n/a
Total Weekly Hours per Rink 56 hours 63 hours 119 Hours
Total Weekly Hours across 5 City Rinks 280 hours 315 hours 595 Hours
28 Weeks across 5 City Rinks 7,840 hours 8,820 hours 16,660 Hours
Ice pad usage is the strongest during prime-time hours and this will be the focus of the ice pad needs assessment. While municipal programming, public skating, and
community access are important aspects of arena use, some of these opportunities take
place during non-prime time hours and when ice times are generally not booked for rentals. An estimated 11% of non-prime hours are used on a weekly basis – this is the time that youth are in school and many adults are working or otherwise unavailable, thus demand is quite low.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 9
Peak week usage data provided by the City indicates that in 2022/23, 92% of available
prime-time arena hours were utilized. This remains slightly below the 95% level experienced pre-pandemic (2018/19). At 96%, prime-time usage is strongest at the Delaney and O’Brien Rinks (CHDRC). However, prime time rentals have been declining at the Don Beer Arena, down from 94% in 2018/19 to 87% in 2022/23. This
suggests waning demand for ice rentals, particularly at the older Don Beer Arena.
Figure 5: Summary of Prime-Time Arena Utilization, 2018/19 to 2022/23 (City of Pickering)
Note: 2020/21 and 2021/22 data (from during the COVID-19 pandemic) is not included. Utilization includes prime time only during November and February (peak times). Source: City of Pickering, 2023.
Comparatively, an analysis completed by the Town of Ajax in 2019 for their Recreation and Parks Master Plan indicated that this community was using 79% of peak hours at the time. More recently, with the amalgamation of minor hockey organizations, the Town
of Ajax saw significant turnback of ice from this group and in response has since closed one pad to ice activities (Village Arena).
Discussions with the Town of Ajax suggest that there remains capacity for additional rentals – by their definition, approximately 16% of weekly prime time hours are unallocated in 2023/24.
The City of Pickering has established the following priority list of non-profit groups that have demonstrated stability and ongoing viability for the allocation of ice time. The City’s allocation policy allows Pickering to recognize a new ice organization or emerging ice sport to provide for unmet community needs from time to time. Ice times may be allocated to enable organizations or groups who have demonstrated that there a need
for programs and services.
91%91%89%95%91%92%
90%
91%
89%94%
93%
87%
91%
90%
89%
96%
88%
96%
75%
80%
85%
90%
95%
100%
2014/2015 2015/2016 2016/2017 2018/2019 2019/2020 2022/2023
All Arenas Don Beer Arena CHDRC
City of Pickering Arena Strategy | March 2024 – Final Draft Page 10
Table 2: Ice Allocation User Groups – Priority Listing (City of Pickering)
User Groups – Priority Order for Access to Ice Time
1.City of Pickering Programs (includes leisure skate and instructional programs)
2.Affiliated Minor Associations, Organizations and Groups
3.Junior A – Pickering Panthers (outside of contract allocation on Delaney)
4.Boards of Education, elementary, secondary, LOSSA, seasonal
5. Occasional, non-affiliated, non-resident and commercial users
The table below illustrates the typical distribution of ice time for each user group from
the current season (2023/24) in the City of Pickering. Approximately 88% of these hours are prime time (an estimated 257.5 hours), with 12% being non-prime (an estimated 34.25 hours). Minor changes in allocation can be expected from week to week.
Table 3: Weekly Ice Utilization (Prime and Non-Prime Hours), 2023/24 (City of Pickering)
Organization Mon Tue Wed Thu Fri Sat Sun Total
Ajax Pickering Minor
Hockey Association 13 16 10 13 10 30 31 123
Durham West Girls Hockey Association 7 1 1.5 5 2 5 10.5 32
Ajax Pickering Ringette Association -- 8 -- 7 -15
Pickering Skating Club 2 3 3 2 3 13
Pickering Panthers Jr A Hockey Club 1 2 2 2 2 -3 13
Pickering Oldtimers --6.25 ---8.5 14.75
City of Pickering 6.5 5 5 2 6 2 3 29.5
Others 8 7.5 5.5 10 11.5 6.5 2.5 51.5
Total 37.5 34.5 38.25 35.0 31.5 52.5 61.5 291.75
Source: City of Pickering, 2023.
Based on current schedules and allocations, approximately two-thirds (67%) of ice time is used by youth-serving ice sport organizations (largely boys and girls minor hockey),
23% is allocated toward adult or other user groups, and 10% is used for City of
Pickering programming (public skating, etc.).
Arena schedules in the Town of Ajax were also reviewed to better understand usage in arenas that share the same base of users. Similar allocations between youth and other/adult uses were evident, as were trends in usage, which generally saw a decline
in rentals in recent years (highlighted by the closure of one ice pad in 2021). It is also
notable that the three cross-municipal organizations use different proportions of ice time
City of Pickering Arena Strategy | March 2024 – Final Draft Page 11
in each community, with boys’ minor hockey generally receiving more ice time in Pickering and girls’ minor hockey receiving more time in Ajax.
However, each municipality accommodates an equal share of total usage from these three groups combined in proportion to their arena supply (Pickering at 55% with 5 rinks and Ajax at 45% with 4 rinks).
Table 4: Share of Weekly Ice Rentals for Regional Youth Ice Sport Organizations, 2023/24
Organization
Usage of City of Pickering Arenas (5)
Usage of Town of Ajax Arenas (4) Total
Ajax Pickering Minor Hockey Association 60% 40% 100%
Durham West Girls Hockey Association 41% 59% 100%
Ajax Pickering Ringette Association 58% 42% 100%
Total 55% 45% 100%
Lastly, there is little conclusive evidence that the closure of the Art Thomson Iceplex has led to increased demand for municipal arenas from adult-serving groups. While the Town of Ajax is accommodating more private rentals during prime time, this may also be a function of additional availability due to the decline in rentals from boy’s minor
hockey. As per the City of Pickering’s ice allocation policy, rentals to adult-serving and commercial groups are attributed the lowest priority, yet some prime-time and ample non-prime time hours remain available for these and other groups.
2.3 Local Participation
Recent and known historical registration numbers for local ice sport organizations are noted below. A focus is placed on youth-serving organizations as these groups are the predominant users of prime time ice.
In 2023/24, there were approximately 2,225 youth registered within local minor ice sport organizations using Pickering arenas; several of these groups are also served by arenas in Ajax.
Of this, it estimated that approximately 42% of youth registrants are residents of Pickering, amounting to 925 local registrants. This accounts for approximately 5% of all youth (ages 5 to 19) living in Pickering. The balance of users live in Ajax and beyond.
In terms of trends, overall registration levels declined by 4% (93 participants) between the 2014/15 and 2023/24 seasons, but have fluctuated from year to year including impacts during the pandemic years. Data for the most recent seasons is also inflated due to mergers between minor sport organizations. Past data from the early 2000s indicates that participation rates were much higher.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 12
More recently, participation declined by 9% from the previous season (208 participants) and has not increased with recent population growth, suggesting that the participation rate in ice sports continues to slowly decline.
Table 5: Ice Sport Organizations, Total Registration Figures (Pickering, Ajax, etc.)
Primary Youth User Groups
Pickering Residents (2023/24)
Total Members2014/15
Total Members2015/16
Total Members 2016/17
Total Members2022/23
Total Members2023/24
Ajax Pickering Minor Hockey Association 44% 1,026 910 924 1,257 1,198
Durham West Girls Hockey Association** 20% 525* 480* 425* 383 390
Ajax Pickering Ringette Association 33% 300* 300* 303 317 308
Pickering Skating Club 71% 445 445 337 454 307
Pickering Panthers Jr A Hockey Club n/a 22 22 22 22 22
Total 42% 2,318 2,157 2,011 2,433 2,225
*estimated; ** excludes seniors program (age 18+)Source: City of Pickering, minor sport organizations
As noted, each of the first three ice sport organizations identified above are also served by arenas in Ajax. Not shown in the table is the Ajax Skating Club, which is also identified as a core user by the Town of Ajax. The Town’s Recreation and Parks Master Plan notes a registration level of 457 skaters in 2019, which has been used for assessing youth registration across both Pickering and Ajax (for a total of 2,682 youth participants).
Figure 6: Youth Ice Sport Registration Figures, City of Pickering & Town of Ajax (2023/24)
City of Pickering Arena Strategy | March 2024 – Final Draft Page 13
2.4 Regional Arena Inventory
The following map illustrates the locations of other arenas in adjacent municipalities.
Figure 7: Regional Inventory of Arenas
City of Pickering Arena Strategy | March 2024 – Final Draft Page 14
In general, Pickering is providing ice pads at a similar rate as the comparator group – one ice pad per 20,600 residents in Pickering, compared to an average of one ice pad per 20,015 persons elsewhere. Pickering’s provision rate is a little more favourable
when one examines the youth population only (1 per 3,400 youth in Pickering compared
to 1 per 3,750 youth elsewhere).
With 2,225 youth registrants in 2023/24, Pickering is providing one ice pad for every 445 youth registrants. However, it is estimated that only about two-fifths (925) of these participants are Pickering residents. When the supply of arenas in Ajax is included in
this equation, the overall level of service changes to one ice pad per 298 youth
participants between Pickering and Ajax as many participants are served by facilities in both communities. The regional nature of Pickering/Ajax minor sports makes it difficult to compare to other jurisdictions with registration boundaries that more closely align with their municipal boundaries.
Table 6: Regional Arena Inventory and Provision Rates
Municipality
Estimated Population
No. of Ice Pads
Provision Rate (all ages)
Provision Rate (ages 5 to 19)
Youth Registrants Registrants per Ice Pad
Pickering 103,000 5 1:20,600 1:3,400 2,225*
(2023/24) 445*
Ajax 126,666 4 1:31,700 1:6,200 2,353*
(2023/24) 588*
Clarington 116,346 7 1:16,600 1:2,800 1,981
(2022-23) 283
Oshawa 191,600 10 1:19,160 1:3,400 2,240
(2022/23) 320
Whitby 138,501 11 1:12,600 1:2,600 4,840
(2019/20) 440
Comparator Average 143,278 8 1:20,015 1:3,750 2,854 408
Note: The Town of Ajax recently closed a single pad arena due to low demand (Village Arena) *Includes several organizations that operate in a regional catchment area also serving non-residents.
2.5 Population Factors
The City of Pickering has an estimated population of 103,000 residents (2024). Between 2016 and 2021, the City demonstrated a growth rate identical to Durham Region (8%). Over the last ten years, Pickering’s population had grown the most amongst seniors
aged 75 and over by 43%, older adults aged 55 to 74 by 38%, young adults aged 20 to 34 by 23%, and children aged 0 to 9 by only 19%.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 15
Looking ahead, Pickering is set to undergo substantial growth. Over the ten-year projection period of this study (2024-34), the City is projected to grow to approximately 149,000 persons – growth of 45%. By 2042, the City’s population is forecasted to grow to 185,044 – growth of 80%1.
Planned population growth is allocated to new communities and strategic growth areas, including the Seaton community, which will account for 70,000 new residents at build out. There are currently no municipal indoor recreation facilities or arenas in this area, though a new recreation complex is planned in the short-term. The City has recently
initiated a secondary plan for Northeast Pickering, which is being planned for approximately 45,000 residents but is beyond the 10-year horizon of this Arena Strategy.
While population growth will lead to more children and youth in Pickering (the age group that is the predominant user of arenas), this cohort is forecasted to grow at a slightly
slower rate than the rest of the population beyond 2034.
Figure 8: Durham Region, Total Population Forecast Shares by Major Age Group, 2021 to 2051
Source: Region of Durham, Region-Wide Growth Analysis Technical Report (June 2021)
Pickering’s population is also diverse, with 52% represented by visible minorities and 12% speaking non-official languages (2021 Census). Recent immigrants, referring to
individuals who first obtained landed immigrant or permanent resident status between
2016 and 2021, represented 2.8% of Pickering’s residents in 2021. Pickering residents who are newcomers to Canada are more likely to reside in growing areas such as Seaton and intensifying areas closer to Highway 401.
1 City of Pickering. Detailed 20 Year Population Forecast. March 2023.
5%
10%
15%
20%
25%
2021 2026 2031 2036 2041 2046 2051
0-19 20-34 35-44 45-54 55-64 65-74 75+
City of Pickering Arena Strategy | March 2024 – Final Draft Page 16
These indicators of Pickering’s diversity may have an influence on demand if
newcomers are more likely to choose other recreation activities over participating in arena programs and sports.
2.6 Arena Participation & Ice Sport Trends
Communities across Canada have experienced a decline in ice sport participation over
the past several years. Understanding trends at the national, provincial, regional, and local level can help anticipate needs for arenas. This section explores current and emerging trends in ice sport participation that could affect the demand for arenas in Pickering.
•Declining Participation in Ice Sports
•Growing Emphasis on Skill Development and Competition
•Narrowing Perception of Prime Time
•Uncertain Impact of Hockey Canada Scandals
•Female Sport Participation May be Declining After Years of Growth
•Other Activities are Emerging and Creating Greater Diversification AmongstSports
•Partnerships can Offer Opportunities to Share Risks and Attract New Markets
Declining Participation in Ice Sports
Youth hockey registration in Ontario has generally declined, with nearly 178,190 registrants in 2023, representing 7.5% of all Ontario youth (aged 5 to 19 years). This is an 18% decline in registration since peaking in the 2012-13 season. This can be linked to several factors, such as the high cost of hockey, concerns over safety, competing interests, aging populations, the uncertain impact of Hockey Canada scandal and
competition from leagues/organizations that are not sanctioned by Hockey Canada.
Figure 9: Youth Hockey Registration in Ontario, 2012/13 to 2022/23
Source: Hockey Canada Annual Reports. Includes players registered in youth hockey (U7 to U21). Note: Player registration was negatively affected in 2020/21 due to COVID-19 and is still recovering.
120,000
140,000
160,000
180,000
200,000
220,000
City of Pickering Arena Strategy | March 2024 – Final Draft Page 17
Since the 2020/21 season when the COVID-19 pandemic first began and registration was at its lowest, youth hockey registration in Ontario has increased by 30%, but is still 14% below 2019/20 registration levels. There is also a risk that young children that
would have been eligible to begin learn-to-play hockey or skating initiation programs
during the pandemic have missed their opportunity due to program/facility shutdowns, and may never pick up the sport. This could lead to further challenge sin regaining past participation levels and create a “void cohort”.
This nation-wide decline in participation is most prevalent amongst boys (but
increasingly being seen in girls’ participation as well) and can be attributed to several
factors, such as:
•changing demographics factors such as an aging of the population, immigrationfrom countries that do not play ice sports, growing polarization between
household incomes, etc.;
•significant and escalating costs borne by households (for equipment, travel, icerentals);
•lack of time for households to commit to sport, especially at the competitive/rep
level;
•difficulties in finding and/or compensating qualified coaches and volunteers;
•volunteer burnout leading to shortages at the executive level and among parent-coaches; and
•growing competition from other sports (e.g., indoor soccer, basketball, etc.) aswell as unstructured, self-scheduled activities.
On the aforementioned point about affordability, research from 2018 found that the cost
of children’s activities put a strain on the finances of a majority (55%) of Canadian parents. As many as one in three (32%) Canadians used debt to fund the extracurricular activities of their children. Hockey topped the list as the most expensive extracurricular activity (an average cost of nearly $750 annually) and the research found that parents
were increasingly less likely to enroll their children in hockey as a result.2 These results are compelling considering today’s challenging economic climate.
Growing Emphasis on Skill Development and Competition
Demand remains strong for competitive development experiences and opportunities. The higher the level of play and the greater the focus on athlete development, the more
time that is required for practices, games, and camps. While this “professionalization” of minor hockey helps to support skill development for many athletes, it also comes at a cost (in terms of both time and money) that can raise barriers for many families. Several sport governing bodies in Canada are implementing the Long-Term Player Development (LTPD) model that emphasizes player growth, maturation, and
development. This model identifies the needs of players at various stages of their development and addresses the appropriate stages for the introduction and refinement
2 Ipsos. One in Three (32%) Families Going into Debt to Fund their Children’s Extra-Curricular Activities, Up 5 Points from Last Year. 2018. https://www.ipsos.com/en-ca/news-polls/back-to-school-2018
City of Pickering Arena Strategy | March 2024 – Final Draft Page 18
of technical, physical, mental, and tactical skills. Pickering’s Learn to Skate programs are currently experiencing high demands with waitlists.
The adoption of the LTPD model has transformed the way many ice organizations
deliver programming, such as a greater emphasis on skill development. Additionally, in
2018, Hockey Canada mandated that novice participants play half ice (or cross ice) to boost fun and skill development. The standards of play mandate minimum thresholds for game and practice time, which can be particularly challenging for the higher levels of play that require greater access.
Narrowing Perception of Prime Time
Historically, municipal arenas experienced strong or steady ice usage during the early mornings or late-night hours. However, usage profiles of arenas – in Pickering and across Ontario – have changed in recent decades. Families are less willing to use early morning weekday ice and interest in late night times for adult hockey has declined.
Some communities are also challenged with filling weekend hours. There are more
tournaments and a focus on skill development, which has also placed a premium on access to prime-time ice, particularly during the week. In short, the prime-time window is shrinking, which is making it more difficult to make use of shoulder and non-prime hours.
Uncertain Impact of Hockey Canada Scandals
Hockey Canada – our nation’s governing body for hockey – has been under intense scrutiny recently due to several sexual assault claims and settlements, to the point that the Canadian government froze its federal funding in June 2022. This followed calls in recent years for improved player safety (programmatic changes have since been made
to reduce the risk of concussion) and a culture of inclusion and acceptance (a Policy
Paper on Anti-Racism was released in 2020).
Canadians are concerned about these issues and they may be impacting their choices to participate in the sport. A public opinion survey from 2021 (prior to the recent sexual assault allegations) found that nearly two-thirds (63%) of players and coaches believe
that hockey has a culture problem with players bullying kids outside of the rink. This
survey also found an issue with affordability, with 88% of Canadians indicating that organized hockey is too expensive for lower-income people to play.3
A more recent survey found that more than half (56%) of Canadians with a connection to youth hockey see sexual misconduct in hockey culture as a major issue. While most
Canadians are supportive of actions announced so far (Hockey Canada prepared an open letter in July 2022 promising change and outlining new complaint mechanisms and
3 Angus Reid Institute. Game Misconduct: Canadians may love their hockey, but they also see serious problems with its culture. May 2021. https://angusreid.org/hockey-culture/
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a review plan), only one-quarter (27%) are confident that the environment will improve for women around the game.4
Female Sport Participation May be Declining After Years of Growth
Although hockey registration is largely male, participation in girls’ hockey had been
rising due to growth in minor and international sport opportunities (such as women’s hockey), changing lifestyle and personal commitments, and gender equity efforts that remove participation barriers for females. In Ontario, girls’ hockey represented one-fifth (21%) of all participants affiliated with Hockey Canada for the 2021/22 season, which is
a 5.3% increase from the 2012/13 season ten years prior.5
However, there are signs that this growth may be levelling off or declining. Starting in late adolescence, one-in-three women leave sport (including, but not limited to, ice sports) as compared to one-in-ten boys.6 This trend has worsened since the onset of the pandemic, when it was reported that over 93% of female sport participants were
negatively impacted (specifically young women ages 6 to 18 years old). The research
suggests that young women are participating substantially less than they did pre-pandemic and that 25% were non-committal in returning to sport after the pandemic.7 Among the barriers cited, girls stated low levels of confidence, low body image, lack of skills and feeling unwelcomed in a sport environment. To bolster participation among
women, the Federal government established a goal of achieving equity in sport participation by the year 2035.
Other Activities are Emerging and Creating Greater Diversification Amongst Sports
The popularity of recreation and sport activities changes with time and can be affected
by several factors, most notably socio-economic characteristics, lifestyle trends, and the exposure and accessibility of the activity. National registration figures indicate that, where once ice hockey and baseball were dominant, soccer has taken rise since the 1990s. More recently, a national study found that interest in children’s activities was beginning to shift away from these sports towards other less formal extracurricular
activities, such as music lessons, dance lessons, language classes, and drama classes.8
4 Angus Reid Institute. Vast majority say Hockey Canada needs new leadership going forward. August 2022. https://angusreid.org/hockey-canada-sexual-misconduct/
5 Hockey Canada. Annual General Meeting Reports.
6 Canadian Women & Sport. The Rally Report. 2020. https://womenandsport.ca/wp-
content/uploads/2020/06/Canadian-Women-Sport_The-Rally-Report.pdf
7 Canadian Women & Sport and E-Alliance. COVID Alert Pandemic Impact on Girls in Sport. 2021.
Retrieved from: https://womenandsport.ca/wp-content/uploads/2021/07/COVID-Alert-final-English-July-2021.pdf.
8 Ipsos. One in Three (32%) Families Going into Debt to Fund their Children’s Extra-Curricular Activities, Up 5 Points from Last Year. 2018. https://www.ipsos.com/en-ca/news-polls/back-to-school-2018
City of Pickering Arena Strategy | March 2024 – Final Draft Page 20
In terms of ice sports, they have become more specialized over recent years with a growing focus on skill development and athletic achievement. This has led toward more camps, specialized programs, and service providers, including sport academics and
private training providers.
Private training facilities have sprung up in many communities, offering paid instructors that teach the area hockey skills, often on synthetic ice. This had led to growing requests for ice time at municipal arenas from commercial renters representing broad geographic memberships.
Partnerships can Offer Opportunities to Share Risks and Attract New Markets
Throughout Ontario municipal recreation departments are increasingly challenged to provide and maintain top quality facilities, services, and programs within defined budget envelopes. And as financial pressures mount and the need for cost containment rises, many departments are examining new and creative service provision methodologies
including developing relationships with outside entities.
There are three types of relationships that are generally available to municipalities interested in pursuing alternative approaches to deliver, operate, or program recreation and sport infrastructure:
•A Public/Private Partnership (P3) – a relationship between the municipality and a
private sector entity;
•A Public/Public Partnership (P2) – a relationship between the municipality andpublic sector agency such as another municipality or a school board;
•A N-F-P Partnership – a relationship between the municipality and a not-for-profitorganization such as a local sports organization.
Some municipalities are gradually shifting from a traditional direct delivery model to one of these structured relationships. Within certain jurisdictions creative approaches has
resulted in:
•the development “core facilities” that would not have been possible had themunicipality addressed the project on its own (e.g., Toronto’s arrangement withthe Ford Performance Centre quad pad arena);
•the provision of “non-core” facilities that represent new levels of service availableto local residents (e.g., Pickering’s arrangement with the Football Club to operatethe Pickering Soccer Centre);
•operating results that are beyond the usual performance thresholds of a
municipally delivered service (e.g., Hamilton’s arrangement with a private arenaoperator for the Mohawk 4 Ice Centre); and
•contracting out operations to a third-party service provider (e.g., London’s
arrangement with the YMCA for the Stoney Creek YMCA and Community
Centre).
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2.7 Arena Provision & Design Trends
This section explores the following existing and emerging arena provision trends:
•Approaches to Arena Provision in Other Communities
•Aging Arenas are a Growing Challenge
•Repurposing of Surplus Arenas
•The Rise of Multi-use Recreation Facilities as Community Hubs
•Inclusivity of Persons with Disabilities and Barrier Free Facilities
•Climate Change and Green Designs
Approaches to Arena Provision in Other Communities
Changing demands and participation levels, evolving facility requirements, and a growing stock of facilities have created surplus ice time in several communities. Certain municipalities have explored adaptive re-use of redundant arena facilities, or closed arenas outright. In the City of Toronto, the range of other recreational activities,
availability of private rinks, changing demographics, and rising costs of ice sport
participation have led the City to plan for the gradual reduction of the number of municipal ice pads, despite Toronto’s population being expected to grow by 500,000 by 2041.9 Similar plans are also in place in communities such as Mississauga, while those municipalities that are planning new facilities over the long-term (e.g., Hamilton) are
doing so at a rate much lower than population growth.
This is elaborated upon in the following chart that shows the current rate of ice pad provision across a selection of large urban municipalities, as well as future plans for arena provision. Pickering is currently providing ice pads at a higher rate compared to other more urbanized municipalities. Looking to the future, most municipalities have
plans to expand their arena supply to address significant population growth, but will do
so at a much lower rate (approximately 1 ice pad per 112,000 residents).
9 Matt Gurney. End of an ice age, Part 1: Is youth hockey dying? 2020. https://www.tvo.org/article/end-of-an-ice-age-part-1-is-youth-hockey-dying
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Table 7:Ice Pad Provision Rates and Future Planning, Selected Large GTAH Municipalities
Municipality Current Ice Pad Supply
Ice Pads per Capita
Future Provision Target
Future Ice Pad Needs
Anticipated Population Growth
New Arenas Per Capita
Column: A B C D E F
Source: Master Plan Pop.’n ÷ Column A Master Plan Master Plan Master Plan Column E ÷ Column D
Pickering 5 1:20,000 tbd tbd (2022-2042) 85,044 tbd
Ajax 4 1:31,700 1:800 participants 0-2(2021-2031) 20,000 n/a
Brampton 20 1:32,800 1:800 participants 0 (2017-2031) 237,000 n/a
Hamilton 25 1:23,800 1:4,500 youth residents 3 (2021-2051) 236,000 1:78,700
Markham 10 1:33,900 1:400 youth participants
1 (2022-2031) 81,900 1: 81,900
Mississauga 25 1:28,700 1:37,500 residents 0 (2019-2028) 50,000 n/a
Oakville 13 1:16,400 1:650 youth participants
1
(2017-2031) 52,600 1:52,600
Oshawa 10 1:17,500 1:500 youth participants
0 (2023-2031) 38,000 n/a
Richmond Hill 8 1:25,300 1:27,000 residents 1 (2022-2031) 39,000 1:39,000
Toronto 65 1:43,000 1:50,000 residents 1 (2019-2038) 450,000 1:450,000
Vaughan 8 1:40,400 1:500 youth participants
2
(2018-2031) 100,000 1:50,000
Whitby 11 1:12,600 1:750 youth participants
1 (2023-2031) 32,500 1:32,500
Average 18 27,827 n/a 1 1:121,500 1:112,000
Source: Community-specific Recreation Master Plans
Aging Arenas are a Growing Challenge
Communities across Canada are experiencing similar provision and design trends as
many facilities are reach the end of their lifecycles. The 2019 Canadian Infrastructure Report Card reported that 39% of Canada’s municipal arenas and pools are in fair to very poor condition. Many of these facilities were built between 1956 and 1980 whose
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age and/or deferred infrastructure renewal/maintenance activities have accelerated the number of facilities in need of replacement.
Municipal approaches to addressing these aging / end of life cycle arenas include
renewal projects, converting facilities into dry pads for other recreational uses, or
supporting the facilities demand by replacing with a more efficient twin or quad pad. Arena users and spectators are drawn to new facilities that offer modern conveniences. New facility designs typically involve: barrier-free spaces; larger and gender-specific dressing rooms; warm viewing areas; multi-pad arenas that generate efficiencies;
amenities such as walking tracks and shooting pads; and more. Multi-pad arenas offer
economies of scale in operation, are more convenient for user groups, and enhance tournament and event potential.
The Don Beer Arena, originally built over 50 years ago, is a local example of a facility with several building components that have reached or are approaching the end of their
useful life. Certain grant and shared funding programs have been introduced by senior
levels of government over the past 15 years to renew aging recreation facilities including the 2011 RInC program, the Building Canada Fund, and most recently the Investing in Canada Infrastructure Program. While these programs have gone a long way toward reducing the infrastructure deficit, significant shortfalls remain in
municipalities across the country.
Repurposing of Surplus Arenas
Changing demands and participation levels, evolving facility requirements, and new multi-pad arena projects have created surplus ice time in several communities. Certain municipalities have explored adaptive re-use of redundant arena facilities for purposes
such as:
•community centre space (e.g., Kingsdale Community Centre in Kitchener)
•indoor soccer (e.g., Syl Apps Community Centre in Paris, Ontario)
•gymnasiums (e.g., Ken Giles Recreation Centre in Brampton)
•indoor playgrounds (Vancouver)
•indoor skateboarding (e.g., Zurich, Ontario)
•dry floor activities / theatre venue (New Hamburg Arena in Wilmot Township,Alliston Arena in New Tecumseth)
•temporary storage (e.g., AMA Arena in Amherstburg, Ontario – since
demolished)
•commercial or institutional uses (e.g., former Maple Leaf Gardens in Toronto)
Other examples of adaptive re-uses include curling rinks, indoor tennis, box lacrosse,
and roller derby. Repurposing can extend the life of an existing facility but can be just as
costly as building new given the need to refurbish and reconfigure building components. As a result, the most common response in Ontario has been to decommission and demolish surplus arenas.
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The Rise of Multi-Use Recreation Facilities as Community Hubs
A community hub is a central access point for a range of needed health and social services, along with cultural, recreational, and green spaces to nourish community life.
A community hub can be a school, neighbourhood centre, an early learning centre, a
library, an elderly persons’ centre, a community health centre, an old government building, a place of worship, or another public space. This concept is gaining traction across Ontario as it offers tremendous social benefits, strengthens community cohesion, and fosters enhanced quality of life by providing a central location to deliver a
range of services.
In an era of user convenience and growing emphasis on cost recovery, many municipalities are centralizing recreation services into multi-use facilities. There are a range of benefits of multi-use facilities including the creation of a destination where all household members can gather and engage in recreation activities, thereby contributing
to sport development, tourism, and operational efficiency. This is part of what makes the
Chestnut Hill Developments Recreation Complex such a destination for Pickering’s residents.
Most recent arena projects across Ontario have been in the form of multi-pad and multi-use venues. While the specific nature and degree of above noted benefits will depend
on local circumstances, facility design and operation, and other factors, there is no
denying that multi-use recreation facilities have the potential to generate substantial economic, social, and environmental gains for local municipalities.
Inclusivity of Persons with Disabilities and Barrier Free Facilities
The Accessibility for Ontarians with Disabilities Act (AODA) directs municipalities to
consider the needs of persons with disabilities through facility design and service
delivery. By 2025, municipalities are required to remove all barriers within new and redeveloped municipal facilities, including those related to physical space as well as customer service through training.
The City of Pickering 2021 to 2025 Five Year Accessibility Plan contains several actions
to improve accessibility and remove barriers within the corporation, although none are
specifically identified for the arenas. The uncertainty surrounding the future of the Don Beer Arena has limited the City’s investment until a path forward is determined for that facility.
Potential Impacts of Climate Change
Environmental concerns are often a top-of-mind issue among Canadians as there is an
increasing need to maximize the efficient use of resources. Relative to ice sport participation and arena design and operations, climate change is contributing to:
•Increased outdoor air temperatures and/or rain leading to the following
challenges for indoor ice arenas:
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o added loads on refrigeration equipment to withstand the warmertemperatures;
o having to increase capacity with cooling towers/condensers on warmer
degree days in the winter;
o added loads on dehumidification equipment inside of ice pad envelopes;and
o trouble controlling indoor facility temperatures due to the swing of outdoorair temperatures; fluctuation is hard to control and creates challenges with
regulating comfort levels.
•Longer than typical usage of outdoor recreation amenities. For example, racquetsport courts are being used into the winter and earlier in the spring, which addsto the workloads of recreation and parks staff that typically would be operating
arena facilities during these seasons.
•Reduced opportunities for natural ice outdoor ice rinks due to warmertemperatures and shorter seasons, impacting casual skating activities andopportunities for new participants to try ice skating in a non-controlled
environment. This is coupled with increased operating costs and greater volatilityfor refrigerated outdoor ice rinks.
Many municipalities have demonstrated environmentally conscious awareness in the design of new facilities that utilize state-of-the-art technologies to enhance environmental efficiency. Pickering has taken steps to reduce its environmental impact
through its Corporate Energy Management Plan.
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3.0 Stakeholder Engagement
A public and stakeholder consultation program was launched to gather input and critical insights relating to this Strategy and the Recreation & Parks – Ten Year Plan. Several community consultation tools were utilized to solicit input from members of the public, arena stakeholder groups, City Staff, and Council. Tactics consisted of surveys,
workshops, open houses, and youth engagement.
3.1 Input from Arena Organizations
To gain insight into local ice demand factors and to inform strategies for the long-term provision of ice surfaces, City of Pickering’s primary arena user groups were consulted through a workshop. This virtual session was held on September 26th, 2023 and was facilitated by the consulting team. Topics of discussion included:
a)participation trends and barriers;
b)organizational challenges;c)facility usage;d)existing facilities;e)future needs; andf)priorities and implementation.
The following organizations were contacted to provide input through the workshop:
•Ajax Pickering Minor Hockey Association (APMHA)
•Durham West Girls’ Hockey Association (DWGHA)
•Pickering Skating Club
•Ajax Pickering Ringette Association
•West Durham Minor Lacrosse Association
•Pickering Old-Timers Hockey League (POHL) – did not attend
Note: The following represents the opinions of local ice organizations at the time of the consultation. Confirmation of ice utilization and future needs is addressed through
subsequent sections of this report; input from ice organizations is one of several inputs used in the future demand model.
Minor Hockey – Boys
The Ajax Pickering Minor Hockey Association provides all levels of programming, including hockey school, house league, and competitive levels up to AAA hockey
(Raiders) to residents of both Pickering and Ajax. The hockey school program is for players aged 4-8 years old. House league currently provides two divisions; U7-U15 and U18/U21. Competitive levels represent U9-U18. The total number of registrants for the minor hockey association in the current year is 1,198 (of which 526 live in Pickering). This is a decline of 59 players from 2022/23 (5%). The group runs three tournaments
City of Pickering Arena Strategy | March 2024 – Final Draft Page 27
out of the Don Beer Arena annually and indicated that there is demand to host more events in Pickering.
Due to the pandemic, the group noted that participants aged 15 and over are slower to
return to house league, with some not returning at all. Meanwhile, the younger age
groups playing in house league or hockey school have returned much quicker than their older counterparts. Another trend relates to shifting demographics, as the organization is seeing more players with diverse cultural backgrounds and new Canadians that want to get involved, learn, and play hockey. Additionally, the group works hard to keep
house league fees low, which has been helpful in attracting more members outside of
the local area.
One challenge identified by the group is the location and travel time to access the Don Beer Arena. Many of those living in the central and north areas of urban Pickering find it difficult to drive down Brock Road to reach the arena location. As a result, members
have been lost to organizations such as West Hill and Stouffville. Another challenge is a
lack of volunteers and difficulty finding people willing to help coach.
Concerning facility usage, minor hockey is generally satisfied with their current ice time provisions. The group does not use ice times during weekday mornings. One suggestion was to better consolidate ice time blocks to allow for more effective
scheduling; smaller slots of time can restrict the group’s programming.
Minor Hockey – Girls
The Durham West Girls’ Hockey Association provides house league and rep hockey programming for females U7 to Senior. At present, the club has approximately 520 participants and has nearly regained its pre-pandemic registration levels. The
distribution of participants is approximately 20% from Pickering, 30% from Ajax, and
50% from peripheral communities such as Scarborough, Markham, Whitby, etc. (unlike boys minor hockey, their governing body does not place boundaries on where girls can play). The Association mainly uses Pickering’s O’Brien Rink and has tried to consolidate their junior house league program to Pickering, but the group also rents ice time in Ajax.
The association is struggling to maintain its house league programming, which feeds
the rep teams. As of 2023/24, only 18% of teams are junior house league. Many older players that had left the organization during the pandemic have not returned and the group is having challenges growing the program locally within Pickering. The club suggested that introducing youth first to floor hockey or CANskate could help to spark
greater interest in hockey. Some parents are also hesitant to pay the upfront cost for a
sport their child may not like, therefore introducing them into cheaper but essential components of skating may help spark interest.
Concerning facility usage, the group also agrees that larger blocks of ice time together would be more efficient in providing programming over the current schedule. There is
enough ice available at the moment, but the time is not always preferable.
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Figure Skating
The Pickering Skating Club provides programming such as CAN Skate and STARSkate to those aged 3 years old up to and including adults. There are approximately 307
participants (of which 218 live in Pickering). Two seasons of skating are provided within
the fall and winter. Most registrants are ages 6 to 15 years, with only a small group representative of adults. Most members are from the Pickering area, with others joining from Ajax mainly. All classes provided were at full capacity last year, and the organization expects to fill all classes again this upcoming season.
The organization has sufficient volunteers and coaches as its current operations require
coaches to be paid and STARSkate participants are required to volunteer as part of their programming requirements. One barrier with facility usage is the number of hours allotted for their organization. As demand becomes greater and classes are already hitting capacity, there are no opportunities to expand programming without more allotted
time.
Ringette
The Ajax Pickering Ringette Association provides ringette programs for those aged 5 to 18 and up. They use both arenas in Pickering as well as the arena in Ajax for their programming. Members total up to 308 in 2023/24 (of which 103 live in Pickering). The
organization provides opportunities at events for residents to try ringette to increase
interest.
Prior to the pandemic there were two ringette organizations, but they have since amalgamated. Registration in younger age groups has been increasing and more members from Ajax have been joining the organization as well. The ringette association
provides early bird discounts and a reduction in fees to incentivize people to join and
register. They also experience challenges with gaining volunteers and have had to switch back to using paid coaches.
Lacrosse
The West Durham Minor Lacrosse Association provides programming in both the spring
and summer. Ajax sport fields are used in the spring months and the Don Beer Arena
floor is used in the summer months. The organization contains 6 rep teams with about 100 participants on these teams.
Comments on Existing Arenas
User groups emphasized quality of arenas to a greater extent than expanding the
supply, providing several suggestions for improving existing facilities. Upgrades to
change rooms to provide gender neutral options was mentioned, as well as providing equipment more suitable for smaller/younger players who do not fit into the standard equipment comfortably. Adding a pro shop at CHDRC was suggested to make it easier for arena users to have access to skate sharpening services. Meeting rooms and
retrofitting for media to stream events are a priority to provide opportunities for
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competitions or events in Pickering. Don Beer Arena was noted as needing many upgrades to allow for a revenue stream from events. Upgrades include improving washroom and change room sizes, a working sound system, better Wi-Fi and seating,
brighter lighting, and a warmup area off the ice for both teams.
Future Facility Needs and Suggestions
Concerning future needs, there were comments about providing sport friendly infrastructure for competitions. This includes a large spectator rink (number of seats were not defined) with all the required amenities, as well as providing enough hotels to
host visitors from outside Pickering. Running tournaments provides many user groups
with revenue required to run their programs, therefore this is a priority to provide an adequate space for these special events.
3.2 Input from the Community
Several community consultations were held to collect public input into the City’s Recreation & Parks – Ten Year Plan. In general, interest in arenas and arena
programming was not identified as a key priority through these consultations. Additional
detail is provided below.
Community Survey
From the Recreation & Parks – Ten Year Plan community survey, respondents identified the following input related to arenas and related activities:
•Nearly one-quarter (23%) of respondents or their household membersparticipated in indoor recreational skating, ranking 11th out of 42 listed activities.This is a decline from 28% that participated in 2017
•Further, 16% of respondents or their household members participated in hockey
or skating, ranking 16th out of 42 listed activities. This is a decline from 25% thatparticipated in 2017.
•More than half (53%) support spending additional public funds to provide more
arenas (ice sports) in Pickering, ranking 24th out of 36 responses categories,
making it a lower priority overall. This is also a decline from the.
•Demand for casual outdoor skating opportunities consistently ranked higher thanindoor ice sports in terms of priority amongst community survey respondents.
Public Open Houses
The following input was gathered on arenas and arena activities through the Recreation & Parks – Ten Year Plan open houses:
•4% of public open house poll results identified ice sports as an activity they wantmore of in Pickering (ranking 13th out of 14 options).
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•From the sticker-dot matrix engagement boards, arenas (ice sports) wereidentified as a medium-priority, prioritized by 106 participants (ranked 7th out of
10 options).
Youth Engagement
Pickering youth were engaged through presentations at local schools, online surveys, and focus group sessions. The following input was received relating to arenas and related programming:
•From the youth community survey, 13% of respondents identified that theyparticipated in hockey or figure skating during the past 12 months, ranking as the22nd most popular recreational activity. Despite this, 29% of youth surveyrespondents identified they would like to see more arenas for ice sports, ranking
as the 4th highest facility priority.
•From the dot-mocracy exercise, arenas (ice sports) were identified as the 4th
highest facility by elementary school students and the 9th highest priority by highschool students, suggesting that ice sports are more popular amongst children.
•Youth focus group participants identified public skating as a fun way to meetingnew people.
3.3 Summary of Key Themes
Several key themes have emerged from the community input provided by participants, categorized below:
Table 8: Summary of Key Themes from Research and Consultation
Finding Description
1.Arena investment is a
lower priority for
many Pickeringresidents.
Pickering residents generally indicated that investment in arenas and the development of new arenas was a much lower priority compared to other
facility priorities such as park amenities, swimming pools, gymnasiums, and multi-use spaces.
2.User groups are
satisfied with current
service levels.
Most user groups are largely satisfied with the City’s provision of arenas, indicating that the existing five ice pads are meeting their needs at the present time.
No requests for additional ice time were received – groups appear to be getting enough time to meet their needs at this time. Some groups recommended changes to scheduling (or different times) but are satisfied with the overall allocation of time.
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Finding Description
3.Aging infrastructure
at Don Beer Arena is
a growing concern.
Stakeholders indicated that several upgrades are needed at this facility, including improved
changerooms and washrooms, lighting, sound system, Wi-Fi, and a warmup area. The location of this facility also poses challenges for many Pickering residents, particularly those living in growth areas to the north.
4.The pandemic had anegative impact onparticipation.
Following the pandemic, house league hockey experienced a slower return, particularly amongst older age groups.
5.Participation isbecoming morediverse.
Organizations have noted that their participant
profiles are becoming more diverse and they are instituting programs to introduce their sports to newcomers.
6.Convenientopportunities will
help the City keep up
with growth-related
needs.
As Pickering grows, local organizations felt that
demand will also rise for ice sports. The provision of
more arena opportunities in proximity to residents may help organizations searching for more ice time (e.g., figure skating). Some groups also expressed a need for more volunteers to help sustain their
operations.
7.Organized ice sportsare becoming moreregional.
Aside from figure skating, all of Pickering’s youth ice sports organizations have amalgamated to some degree with neighbouring Ajax to enhance the level of competition and find efficiencies in the face of declining registration. Some groups prefer to play in
certain jurisdictions, creating a “home base” for their operations. An examination of ice schedules indicate that each municipality accommodates an equal share of total usage from these groups in proportion to their current arena supply.
City of Pickering Arena Strategy | March 2024 – Final Draft Page 32
4.0 Operational Assessment
This section examines the condition of existing City of Pickering arena facilities and makes recommendations for their continued operation and programming.
4.1 Review of Existing Arena Condition & Operations
Below is an assessment of the current condition and operations of City of Pickering arena assessments as completed by Largo Facility Management. Observations and recommendations are based on site visits in September 2023, reviews of relevant
reports made available by the City, input from stakeholders, discussions with municipal staff, and operational best practices from similar jurisdictions. Arena facilities and associated amenities are described in Section 2.
Chestnut Hill Developments Recreation Complex
The CHDRC contains two indoor ice pads – Delaney and O’Brien. The O’Brien ice pad
has been identified by the City as a candidate for renovation and has included funds within the City’s 10-year capital plan. The scope of renovations (anticipated for 2027) would include replacement of the slab and boards, change room improvements, etc. In total the City has allocated approximately $10.5 million over the next 10 years within its capital plan for the CHDRC arenas.
The City’s Facilities Renewal Study (2024) notes that, as the CHDRC approaches 50 years within the next decade, it would be prudent for the City to begin long-term planning for facility reinvestment or replacement at that time. The entire building has a facility condition index of 0.26 (fair condition), with an overall condition score of 3.09, ranking it as the 15th out of 23 municipal capital assets studied (with the lowest ranking
facilities being candidates for disposal).
Our general observations of the CHDRC arenas are as follows:
•Both ice rinks are in very good condition from an operational perspective. Rinkstaff should be complimented on the facility’s upkeep and overall maintenance.
•Both ice surfaces look to be in very good condition during the walk through withice sport line markings clear and not cut out. It is evident that operations stafftake pride in providing a quality ice surface.
•Rink boards and rink glass shielding appear to be in fair condition with spectatorsafety netting in place as precautionary protection from pucks making their wayover the rink glass. Consideration be given to future year capital replacements asit is noted to be budgeted for replacement in 2027 (O’Brien).
•While the main entrance to the rinks is separate from the main entrance of theCHDRC, this has both pros and cons. An advantage is that ice sports can belouder than other types of sports at the CHDRC, so this keeps the added noise of
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ice sports away from the quieter recreational activities such as swimming and fitness. Conversely, separate entrances can be confusing for participants and spectators showing up for ice sports and trying to find the rink entrance, as well
as limiting for cross-programming.
•Parking would appear to be in high demand at this site, particularly during peaktimes. As part of its investments in the City Centre, the City is considering severalmajor capital projects that will have implications on parking in the vicinity. The
construction of above- and below-grade parking structures will be considered by
City Council as part of the City Centre projects.
•Both ice rinks are slightly smaller than NHL regulation; however, this was notraised as a significant concern by user groups during the stakeholder
engagement sessions.
•In review of the 2023 operating budget, utility costs appear to be in line with thistype of facility.
The City may consider completing a more detailed energy analysis with a focus in
achieving Zero Carbon Building Design Standards, which has been a prerequisite for
recent grant applications. The analysis should provide solutions to the challenges noted in this facility.
Table 9: Refrigeration Room Assessment, CHDRC Arenas
Observations Recommendations
Delaney Rink:
•Consists of three 50 horsepowercompressors.
•Refrigeration plant had a refresh in 2004and again in 2015.
•A Desiccant unit services both ice pads.
•Service is up to date and well maintained.
•System is controlled by a T775 controllerutilizing supply and return temps and aslab temp sensor.
O’Brien Rink:
•Consists of multiple compressors thattotal 200 horsepower.
•Refrigeration plant received a refresh lessthan 5 years ago.
•Efficient plant with an abundance of heatrecovery available for use.
•System is controlled by a T775 controllerutilizing supply and return temps.
•Implement infrared red cameras (IRC’s)on both ice surfaces to control therefrigeration systems call for refrigeration.These IRC’s read the actual temperatureof the ice surface and allow for greaterefficiency.
•Implement a refrigeration control systemso that different schedules can be used tocontrol differing ice temperatures such asa night set back temperature so that theice surface is warmed up slightlyovernight.
•Monitor cooling tower water treatment toprevent scaling on the tube bundle whichleads to reduced efficiencies.
•The City may consider completing a moredetailed energy analysis with a focus inachieving Zero Carbon Building DesignStandards, which has been a prerequisite
for recent grant applications. The analysisshould provide solutions to the challengesnoted in this facility.
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Observations Recommendations
•System is in very good condition and inconsulting with staff, the system worksefficiently.
•New and emerging heat recoverytechnologies to heat the pool, tennisenclosure, etc. should continue to beexplored when replacing equipmentthrough capital upgrades. Examples ofheat recovery systems include
‘Thermastore’ tanks or ‘Doucette’desuperheaters. This heat recovery canbe used to heat domestic water, pool
water, and ice resurfacer snow pits, etc.As part of the Energy Management studybeing conducted in 2024, consideration
should be given to exploring full utilizationof heat recovery. Advancements in thepast few years has the waste heat fromrinks being used to heat multi-homedevelopments. See figure below.
Figure 10: Example of Heat Recovery Technology
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Table 10: Ice Resurfacer Room Assessment, CHDRC Arenas
Observations Recommendations
•Both ice rinks share the ice resurfacerroom.
•There is a snow pit in the room butunsure of the effectiveness of snow meltability.
•Olympia ice resurfacer is used as theprimary ice resurfacer while a Zamboni isused as the backup/secondary iceresurfacer.
•Both ice resurfacers are currentlypowered by fossil fuels.
•Resurfacer room is large and serves formaintenance bay for operational taskssuch as blade changes etc.
•During next ice resurfacer replacement,consideration be given to switching to anelectric ice resurfacer as part of greenenergy enhancements.
•Installing a level ice system on the currentice resurfacers to assist the operator inachieving a level ice surface while
maintaining a desired ice thickness toimprove efficiencies both on therefrigeration plant run times and also the
reduced hours for staff on icemaintenance. Both Olympia and Zambonihave level ice systems that can be
retrofitted onto the current primary iceresurfacer.10
The following points provide a summary of key findings and opportunities:
1.As part of the planned Energy Management Study being conducted in 2024,consideration should be given to heat recovery and the possibility to reclaim
waste heat from refrigeration plant to heat the pool and tennis court area.
2.Consider the use of electric ice resurfacers during the next replacement cycle.
3.Consider using a level ice system for the current primary ice resurfacer.
4.Consider building automation system for refrigeration plants.
5. Consider ‘sub-zero’ ice management tool. This tool would elevate the facilities ice
management process to a higher level while also aiding the operations team in
completing their regular ice depth checks.
6.This capital plan within the City’s long-term capital forecast is appropriate for thisfacility while recognizing the age and operational changes that the facility mustmeet such as barrier-free accessibility requirements.
Don Beer Arena
The Don Beer Arena contains three ice pads. Short-term upgrades identified in the City’s capital forecast include external door replacements, lighting, plant work (rink 3) and building envelope. The forecast also includes for the partial retrofit of rinks 1 and 3 in 2027 and 2028 (e.g., boards, roof, dehumidifier, etc.).
The City’s Facilities Renewal Study (2024) finds that all three rinks are coming due for
replacement of their refrigerated slabs and aprons, representing major capital costs.
10 https://canadianrinkservices.com/level-ice
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Current projections estimate that over $20 million will need to be invested at Don Beer Arena just to keep the facility in good condition over the next 10 years. The entire building has a facility condition index of 0.42 (poor condition), with an overall condition
score of 3.11, ranking it as the 13th out of 23 municipal capital assets studied (with the lowest ranking facilities being candidates for disposal). Consideration may be given to whether it is practical to reinvest in this asset or better to replace its amenities at another location.
Our general observations of the Don Beer Arena are as follows:
•The arena dasher boards and glass systems are in good condition and appear tohave been updated regularly.
•Upon our review, ice conditions appear to be in excellent shape with ice depths
within an ideal range with no cut out of lines, etc.
•Facility operators do an excellent job with resurfacing and ice maintenance.
•In review of the 2023 operating budget, utility costs appear to be in line with this
type of facility.
•The arena ceilings are very low with younger aged summer lacrosse using thefacility; however, the height does not appear to be an issue.
Table 11: Facility Assessment, Don Beer Arena, Part 1
Refrigeration Room Ice Resurfacer Rooms
•Rinks 1 & 2 share a refrigeration plant with
200 horsepower and a plate and frame heatexchanger.
•The refrigeration plant is automated with a1000 E with both slab and camera sensors.
•There is no underfloor heating system dueto the age of the facility.
•Rink 3 has a dedicated refrigeration plantwith 150 horsepower and a plate and frameheat exchanger.
•The cooling tower water treatment is notperforming as it should be with evidence ofscaling, leading to inefficiency of the plant.
•The underfloor heating system is currentlynot working so the City is unable tomaintain summer ice operations.
•Rinks 1, 2, & 3 all have desiccantdehumidification that perform well, althoughin the shoulder season times with higheroutdoor air temperatures/precipitation, thecurrent equipment does not have thecapacity to maintain humidity levels.
•Rink 1 and 2 share a small room
between the 2 rinks that has difficultyhousing the ice resurfacer and isrestricted to a side dump ice resurfacer.
•There is no access to outside from thisroom. Staff dump ice shavings inside.
The current process is to empty thenmelt with hot water.
•Unable to perform ice resurfacermaintenance in this room due to beingtoo small.
•Rink 3 has a larger, more traditional sizeice resurfacer room.
•Has access to outdoors for dumping ofice shavings.
•Serves as the maintenance bay for allice resurfacers.
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Table 12: Facility Assessment, Don Beer Arena, Part 2
Dressing Rooms Accessibility
•Rinks 1 & 2 are very small and outdatedand do not meet accessibility standards.
•Older aged teams need to use 3 rooms toaccommodate the number of players.
•Rink 3 has 6 change rooms and are larger,however they too do not meet accessibilitystandards.
•Facility is deemed accessible bystandards at the time but would not meetcurrent accessibility requirements.
•A significant investment would need tobe made to meet current OntarioBuilding Code requirements.
The following points provide a summary of key findings and opportunities:
1.If Hydro One mandates the stormwater management implementation for the
parking lot (to be completed by the City of Pickering at the City’s expense), thisproject will add significant costs (estimated at $3 million or more) to the facility’slong term capital plan. This is in addition to the approximately $100,000+ annualcost to lease the parking lot lands from Hydro One.
2.The 2023 operating budget for Building Repairs & Maintenance was identified at
$213,606. This amount represents a significant operational cost annually thatspeaks to the challenges of maintaining an aging facility.
3.Operationally, the City may consider the following if the facility is to bemaintained as an arena for several more years:
a.Rinks 1, 2 & 3 refrigeration plant control systems (1000E) are outdated and
are no longer supported or serviceable by contractors. It is recommended thatthese refrigeration controls systems be replaced (estimated cost $75,000 perice plant of which there are two, including new sensors, hardware, andsoftware with tie-in to the dehumidification unit). There may be utility
conservation grants through "Save on Energy" through prescribed
engineering improvements.
b.With no underfloor heating system in Rinks 1 & 2, there is no ability toeffectively run summer ice. The Rink 3 cooling tower water treatment is notperforming as it should; an accumulation of scale is visible which leads to
decreased heat transfer leading to additional run hours on equipment, whichshould be addressed. Further, the Rink 3 underfloor heating system is nolonger working and is unable to maintain summer ice operations.
c.Heat reclamation: Although the facility is aging, there is still opportunity for
reclaiming waste heat from the refrigeration systems and providing building
heat, offsetting the domestic hot water heating demand, or using waste heatto assist with melting snow from the ice resurfacing process. The refrigerationsystems both have a generous supply of waste heat opportunity not beingutilized.
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d.‘Sub-Zero’ ice management tool: This tool would elevate the facilities icemanagement process to a higher level while also aiding the operations teamin completing their regular ice depth checks.
e.‘Level Ice System’: This system would be mounted on the current ice
resurfacers and assist the operators in achieving a level ice surface whileensuring a consistent ice thickness is maintained leading to improvedoperational efficiency.
f.Cooling tower scaling: It was noticed during the walk through that there was
evidence of scaling within the cooling tower of the refrigeration system. We
would recommend a further review of the water treatment system and ensurethat the water chemistry is being maintained so that scale is being removed toeliminate build up on the hot gas coils so that improved heat transfer can beachieved leading to decreased run times on the equipment.
4.Due to lower demand levels, the City may consider having the Don Beer Arena
“go dark” throughout daytime hours (Monday to Friday) to improve efficiencies,where possible. This will allow for utility savings, reduce wear and tear on anaging facility, and allow for staff to be redeployed to other areas of the operation.
The age of the original Don Beer Arena deems it has outlived an acceptable lifespan,
which the Ontario Recreation Facility Association identifies at 30 to 40 years. The
original Don Beer Arena is now 55 years old, although other parts of the facility are newer. To improve the facility at the current site with the extra costs associated with the parking lot lease and need for a stormwater management plan, as well as the need for accessibility improvements represents a serious financial risk for the City.
On this basis, strong consideration should be given to decommissioning the Don Beer Arena within approximately the next five years to avoid major capital
expenditures. Following this, the property may be disposed of upon opening of a replacement ice facility that aligns with local needs.
This approach could be completed over a multi-year timeframe, subject to planning for
capital replacement through new arena infrastructure at another location. The following
steps may be considered in implementing this direction.
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Table 13: Approach for Decommissioning Don Beer Arena
Phase Recommendations
Phase 1: Limit capital spending & establish replacement strategy
•Facility remains active and an integral part of the City of Pickering icesports programming and facility rental inventory
•Begin to limit spending but maintain all operating budgets
•Confirm site for a new facility build including a funding plan
•Begin scaling back capital repairs and improvements other than bareminimum life safety improvements and necessary accessibilityrequirements
•Work with Hydro One and ask for an extension on stormwatermanagement collection
Phase 2: Facility nearing end of life
•No capital improvements unless necessary for structural or legislated
safety requirements
•No operating projects and only operate using a day-to-day operating
expense
•Construction has begun on new facility
Phase 3: Closure and transition
•Grand opening of new facility
•Declare Don Beer Arena as surplus for decommissioning/retirement;consider sale as adaptive re-use to alternative uses would not rectifysite issues and would require considerable reinvestment
Note: Timing / phasing will depend on arena replacement plans.
4.2 Recreational Skating Review
In addition to rentals, the City offers registered skating (e.g., learn to skate) and drop-in
skating programs (e.g., public skating, shinny, etc.) at both ice facilities. Registered programs are offered during prime and non-prime times, while drop-in activities are mostly scheduled during non-prime times. For the 2023/24 season, City programs accounted for 29.5 weekly hours of use across the system (nearly 6 hours per rink).
In examining the available options, there is a very good cross section of opportunities
available for all ages. In particular, the pre-registered Learn to Skate program is well attended and offers a wide selection of opportunities to all ages and skating abilities. It is understood that there is currently a waitlist for these registered programs. This is a trend seen in many other communities as some families are still trying to get “caught up”
from the pandemic and learning to skate is an activity that is important for many
newcomers (including both youth and adults).
Overall participation in drop-in skating programs has been in decline, decreasing by 28% since 2014. If this trend continues, it may be attributed to Pickering’s increasingly diverse population and a growing number of residents that have little interest or skills in
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ice sports. Contrary to this finding, however, many residents expressed greater interest in outdoor skating opportunities through the latest Recreation & Parks – Ten Year Plan community engagements, suggesting that this is the preferred environment for this
activity and/or that residents are seeking more affordable participation options as
outdoor rinks are typically free to use. Outdoor rinks are not capable of accommodating organized play requirements and are not part of the assessment within this report.
Table 14: Participation in Drop-in Skating Programs (2014-23)
Drop-in Program 2014 2023 Change (#) Change (%)
Public Skate 6,655 5,084 -1,571 -24%
Shinny 302 223 -79 -26%
Parent & Tot 723 117 -606 -84%
Senior Skate 2,243 1,733 -510 -23%
Total 9,923 7,157 -2,766 -28%
Source: City of Pickering.
To improve participation levels, accessible options for residents, and off-peak revenue enhancement, the City may wish to consider:
•increasing the number of Learn to Skate time slots to address the currentbacklog of demand (City programs have priority over other uses within the City’sIce Allocation Policy);
•providing additional Parent & Tot Skating and Parent & Tot Stick/Puck as theseare only offered once per week;
•offering “Ticket Ice - Figure Skating” to support Skate Canada Members; and/or
•moving the shinny hockey program to the CHDRC; doing so would consolidate
all recreational skating opportunities (drop in & pre-registered) at one facility.
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5.0 Arena Needs Assessment
This section evaluates the overall supply of indoor ice pads in the City of Pickering based on a qualitative and quantitative analysis. The projection period is to the year 2034, however a longer-term horizon is considered where possible.
5.1 Arena Needs
In identifying current and future ice facility needs, several inputs have been considered. Ice demand is heavily influenced by local participation and programming. Registration
data, arena usage, and input from stakeholders are the key building blocks to our analysis. Community growth projections are then layered in to forecast future needs. These inputs are documented in previous sections.
Figure 11: Factors considered in the Ice Needs Assessment
Current Demand
All indicators suggest that there is capacity within the current arena supply to accommodate more users. For example:
•Prime-time usage sits around 92% (87% at Don Beer Arena), leaving
approximately 25 hours of prime time ice available for use on a weekly basis –this is equivalent to nearly 0.5 ice pads of excess supply. Demand isparticularly soft on Saturday evenings.
•User groups are not requesting additional time and are not pressured to use
shoulder or non-prime hours (e.g., weekday mornings). They appear to begetting as much ice time as they need to run their programs either locally or inAjax.
•In Pickering, youth participation in ice sports declined by 8% (203 participants)
between the 2014/15 and 2023/24 seasons, after several years of additionaldeclines – across Ontario, youth participation in ice sports peaked in 2012/13.Participation has not increased with recent population growth, suggesting that theparticipation rate in ice sports continues to slowly decline.
Population Factors (Section 2.5)
•PopulationCharacteristics,such as age andimmigration
•Growth Forecasts
Arena Utilization (Sections 2.1, 2.2, and 2.4)
•Ice Utilization
•Limitations of CityFacilities•Availability of OtherArenas in theVicinity
Participation & Trends (Sections 2.5 and 5.1)
•General Trends inRecreation•Ice SportRegistration Levelsin Pickering
Public & Stakeholder Input (Section 3)
•Challenges andOpportunities•Requests forAdditional Ice Time
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•Of the 2,225 estimated youth ice sport participants making regular use of theCity’s arenas, it estimated that approximately 42% (925) are residents of
Pickering. This accounts for 5% of all youth (ages 5 to 19) living in Pickering,
meaning that 1 out of 20 youth play organized ice sports locally. This is notablylower than participation rates that we have seen in other communities where wehave conducted similar analysis, and likely in the range of half of the provincialaverage. While trends in ice sports do not suggest rising participation rates, the
5% rate is a reasonable figure to use for projecting participation over the next ten
years. Participation levels should be collected by the City to ensure that thisassumption remains valid.
•The Town of Ajax has also been seeing reduced demand for ice time for several
years, leading them to reduce their supply from 5 ice pads to 4 ice pads throughthe closure of Village Arena. The Town indicates that there remains capacity foradditional use during prime time hours (roughly calculated at 0.6 ice pads ofexcess supply). Ice permits are guided by an ice allocation policy that is similar innature to the one employed by the City of Pickering.
•Pickering is currently providing ice pads at a similar rate to other areamunicipalities but a higher rate than more urbanized municipalities, which theCity is transitioning into. As Pickering grows beyond 2034, the rate at which itprovides ice pads could potentially decline in response to efficiencies, regional
supplies, and participation trends. While many larger municipalities are planningto expand their arena supply to address growth pressures, they are doing so at asignificantly lower rate.
On the basis of these findings, it would appear that the City has some degree of surplus ice at this time and is under no immediate pressure to expand its supply in the short-term. An examination of current usage levels suggests that – with increased coordination of ice rentals with the Town of Ajax to ensure sufficient allocation of time
to core minor groups – the City could consider reducing its supply to 4 ice pads.
Estimating Future Participation
As noted, any projection of local ice demand must consider jointly the needs of the City
of Pickering and the Town of Ajax as the primary arena user groups offer service to residents of both municipalities (aside from figure skating). Presently, there are 9 ice pads (5 in Pickering and 4 in Ajax) serving approximately 2,682 youth registrants (see Figure 5 in Section 2.3) – including residents of Pickering, Ajax, and beyond – for a current average of 298 players per rink.
The projected number of ice participants can be calculated by applying overall participation rates to the forecasted population of the identified age groups. By applying the age cohort assumptions established for Durham Region to the City of Pickering’s population forecast, it is estimated that the City’s population aged 5 to 19 years will grow at a rate of approximately 50% over the next ten years, slightly higher than the
City’s projected growth rate of 45%. If the youth ice sport participation remains steady at 5% for the ten-year projection period, this suggests that arena registration amongst
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Pickering residents will also grow by 50%, an increase of 460 players by 2034. Both the projected youth population and participation rate are lower than estimates from previous plans, which will have a dampening effect on future arena requirements.
Arena demand generated from those living outside of Pickering (but served by local or
regional groups) must also be considered. It is noted that Pickering’s population is expected to grow more than twice as fast as Ajax’s, thus Pickering’s share of youth participants is likely to increase at a greater rate over time that than of Ajax. A youth growth a rate of 20% over the next ten years has been applied to estimate the number
of future youth ice users from municipalities beyond Pickering.
The following table illustrates an updated forecast of youth registration levels in Pickering (and more broadly for West Durham minor sports groups) to the year 2034.
Table 15: Projection of Registered Youth Ice Sport Participants, City of Pickering and Town of Ajax (present to 2034)
Category Current (2023/24) Forecast (2034) Change (2024 to 2034) Change (2024 to 2034)
City of Pickering Population, ages 5 to 19 years
(estimated 50% growth rate) 18,400 27,650 9,250 50%
Youth Registrants – City of Pickering residents only (5% local participation rate) 925 1,385 460 50%
Youth Registrants – Outside Pickering (Ajax, etc.) (estimated 20% growth rate) 1,757 2,108 351 20%
Youth Registrants – Total 2,682 3,493 811 30%
Population sources include Region of Durham, Region-Wide Growth Analysis Technical Report (June 2021), Envision Durham Official Plan (2023), and City of Pickering. Detailed 20 Year Population Forecast (March 2023). Where necessary, population forecasts have been interpolated to match the projection period.
With consideration of demographic forecasts and participation rates, it is projected that the number of youth ice sport participants registered within affiliated local organizations will increase by 30% over the next ten years. This represents growth of 811 participants, from 2,682 in the 2023/34 season to approximately 3,493 registrants in 2034.
Changes in the population forecasts along with unforeseen factors influencing ice sport participation rates are two notable factors that could impact estimated future ice demand. The absence of age-cohort population forecasts for Pickering has led to the
use of several assumptions in the projection model. Any substantial increase or decrease in the child and youth population or the rate at which they participate in organized ice sports could impact the analysis of arena needs. The City is encouraged to closely monitor this data and potential impacts on the needs assessment over the coming years.
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Establishing a Target for Future Provision
Use of a participant-based service target for forecasting arena demands is preferred over a population-based target as it is better able to reflect local participation levels and
trends and is more strongly aligned with standards of play. Using registration data from
local user groups, market-driven targets can also assist municipalities in tracking demand over time.
Through updated research and consultation with stakeholders, a youth-based provision target is recommended moving forward as prime time ice needs for youth
organizations – the primary user of municipal arenas – have become more apparent.
This approach better reflects how the City allocates ice time and ensures that youth have reasonable access to ice time outside of school hours. Adult ice usage also tends to be more volatile as they require less ice time per participant and are generally more flexible in when and where they rent ice time. A service target of one ice pad per 400 to
500 minor participants is typically used to project future needs in comparable mid-sized
municipalities.
For planning purposes, an appropriate provision target for the City of Pickering is one ice pad per 400 youth participants. This target must also be applied to arenas in the Town of Ajax as both Pickering and Ajax arenas generally serve the same registrants. For the 2023/24 season, there is an average of 298 youth participants using the nine ice pads operated by the City of Pickering and Town of Ajax.
The provision target of 1 ice pad per 400 registered youth assumes that youth will continue to use the large majority of prime time hours and that, over the long-term, the intent is to accommodate the needs of all local groups and their residents within
Pickering and/or Ajax. The target is intended to represent a reasonable supply-demand equilibrium that recognizes the high cost of building and operating areas and balances this against the expectation that most user groups will have to accept some hours at the edges of prime-time and/or adjust their programs to maximize the use of available ice time. It is also set at a level that will allow for modest growth in City programming during
prime times, as well as occasional tournaments, and adult usage during shoulder hours.
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Projecting Current and Future Needs
The following table illustrates application of the preferred provision target, assuming the estimated participation rate (5% of Pickering youth) and that the youth market segment
changes at the forecasted rate.
Based on a current supply of 9 ice pads, this analysis identifies a surplus of 2.3
ice pads at present between both Pickering and Ajax, declining to a modest surplus of 0.3 ice pads by 2034.
Table 16: Projection of Ice Pad Needs, City of Pickering and Town of Ajax to 2034
Category Current (2023/24) Forecast (2034)
Youth Registrants – Total (Pickering, Ajax, etc.) 2,682 3,493
Number of Ice Pads Required
(based on 9 pads at present and a provision target of 1 ice pad per 400 youth registrants)
6.7 pads 8.7 pads
Additional Ice Pads Required (Pickering & Ajax) surplus of 2.3 pads surplus of 0.3 pads
Although beyond the projection period of this strategy – based on the stated assumptions and forecasts – the long-term (2042) projection is estimated to be in the
range of 10 to 11 ice pads, which would be 1 to 2 ice pads more than are currently available between Pickering and Ajax.
The current calculated surplus of 2.3 ice pads is greater than that stated on municipal ice schedules, which show that there is the equivalent of about 1.1 ice pad of unused
prime time at present between the City of Pickering and Town of Ajax, some groups are
likely receiving additional time over and above typical standards of play. In a scenario where supply and demand are in equilibrium, these groups would be expected to modify their programming to align with standards of play, which should enable them to continue to meet their targeted level of service.
It should be noted that, although this exercise includes a forecast of arena needs for the
Town of Ajax, endorsement of this calculation has not been sought from this municipality. This regional projection of arena demand is not binding on the Town of Ajax and assumptions are required as to the degree to which these arena needs will be met by the Town in the future, if any. Reference should be made to the Town of Ajax’s
approved Recreation and Parks Master Plan which identifies arena needs to the year
2031.
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Allocating Needs Between Municipalities
Currently, the City of Pickering supplies 5 indoor arena pads and Town of Ajax operates 4 pads.
For the purposes of this Arena Strategy, it is assumed that arena needs will be shared equally (50/50) by both Pickering and Ajax as these two municipalities are projected to
have similar total populations by the year 2034. Based on this assumption, the City’s
localized demand is currently for 3.4 ice pads (1.6 pads surplus), growing to a need for 4.4 ice pads by 2034.
Table 17: Allocation of Ice Pad Needs, City of Pickering and Town of Ajax to 2034
Category Current (2023/24) Forecast (2034)
Total Number of Ice Pads Required 6.7 pads 8.7 pads
City of Pickering – 50% of requirement 3.4 pads 4.4 pads
City of Pickering – less existing supply (5 pads) surplus of 1.6 pads surplus of 0.6 pads
Town of Ajax – 50% of requirement 3.4 pads 4.4 pads
Town of Ajax – less existing supply (4 pads) surplus of 0.6 pads deficit of 0.4 pads
If these assumptions and growth rates remain accurate, a longer-term projection to the year 2042 results in a local need for roughly 5 to 6 ice pads in Pickering.
5.2 Considerations for a Multi-Purpose Event Arena
As Pickering grows, there may be greater interest in larger capacity facilities that can support the City’s economic and tourism goals, in addition to community-based recreation needs and/or goals for supporting high-performance athletics. The service
delivery model articulated in the 2017 Recreation and Parks Master Plan supports a broad range of opportunities for residents of all ages and abilities, with a focus on community-based programming. This model does not explicitly include or exclude projects with expanded economic or tourism benefits, but does emphasize the importance of special events in the community.
A multi-purpose/spectator event arena is not necessary to satisfy community recreation needs. City of Pickering programming and events, as well as the programs offered by local ice sport organizations, are capably accommodated within current facilities, notwithstanding the potential for one-off events or provincial/national level events. Currently, the highest level of play in Pickering – and thus the likeliest to draw the most
spectators on a regular basis – is the Junior A Panthers Hockey Club, which typically draws less than 200 spectators per game. Tournaments and events can draw more attendees, but are generally able to be accommodated by the 850 seats in the Delaney Rink.
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Based on our knowledge of multi-use event venues in Ontario (such as facilities that host Ontario Hockey League teams, typically with 4,000+ seats), most of these facilities are rarely used for community recreation (e.g., municipal programming, minor sports,
etc.) due to their lack of consistent availability during prime time and are not typically
included in the calculation of local facility requirements. Municipal arenas commonly provide 200 to 1,200 seats to meet community-level needs, a range that is largely provided for in Pickering at the CHDRC.
The size of the market and ability to attract hundreds of events year over year are key
considerations to creating a viable business plan for a multi-use event venue that can,
at minimum, break even operationally. The nearest large indoor spectator venues to Pickering include the Pickering Casino in Pickering (“The Arena”, a 2,500-capacity entertainment venue with retractable seats) and Tribute Communities Centre in Oshawa (home of the Oshawa Generals and a capacity of up to 7,300 persons). There are also
several large-capacity venues closer to downtown Toronto with ready-access to the GO
Train.
The initial capital outlay for these facilities is sometimes justified based on the argument of indirect benefits to the community, such as economic spin-offs, increased tax assessments from nearby landowners, job creation, enhanced civic marketability,
tourism, etc. Increasingly, many of these facilities are supported by public-private
partnerships that leverage private funding. The return on investment is defined differently in these scenarios, compared to community-based recreation facilities that are supported on the basis of greater social cohesion, individual health, and community wellbeing.
A detailed viability assessment is beyond the scope of this study, but with many
spectator and event facilities already available in the Greater Toronto Area, it is possible that the inventory is saturated. A more detailed evaluation is recommended should there be interest in further evaluating the viability of a multi-use spectator event centre to support both ice activities and other high-profile events in Pickering (e.g., stadium-style
arena with seating for 3,000+ spectators). The City may also wish to consider the ability
to modify one of the rinks at the CHDRC to meet expanded needs.
The following items may be considered to identify options and viability of a multi-use event venue in Pickering:
1.Situational Assessment:
•Alignment with corporate objectives, financial capabilities, etc.
•Gap analysis and identification of potential uses, tenants, events, etc.
•Market demand analysis (consideration of other facilities within market-shed)
•Case study analysis (best practices from comparable facilities and models)
City of Pickering Arena Strategy | March 2024 – Final Draft Page 48
2.Opportunities:
•Location assessment (site, servicing, parking, transit, adjacencies, etc.)
•Impact on existing municipal facilities
•Partnership analysis (including private sector contributions)
•Economic impact analysis / risk assessment
3.Costing and Implementation:
•Conceptual design (building features, seat count, etc.)
•Cost estimation (capital and operating)
•Governance and management structure
•Funding strategy
5.3 Arena Provision Options
The analysis above supports the provision of up to 4 indoor ice pads in Pickering to meet current community needs (1 less than are currently provided), with demand for a fifth ice pad anticipated closer to 2034. There is sufficient
capacity to accommodate all affiliated minor sports organizations within prime time
through a coordinated effort involving both Pickering and Ajax. This assessment is based on the Town of Ajax providing equal access to cross-jurisdictional minor sport organizations and no private arenas being established in the region.11
Note: Although the City may pursue the development of refrigerated outdoor skating rinks in the future, outdoor pads are intended for leisure skating uses and are not able to satisfy the requirements for organized play. On this basis, outdoor rinks are not considered within this report.
Options
Based on the analysis in this report, two options for meeting community-based arena needs over the next ten years have emerged (numbered for ease of reference):
Option 1: Reinvest in Don Beer Arena
Under this option, the CHDRC and at least two pads at the Don Beer Arena
would be maintained for at least the next ten years, with the goal of keeping them operational much longer. This option will require continued investment in both facilities, most notably Don Beer Arena which has immediate and significant capital requirements despite being underutilized. To right-size supply with
11 The Town of Ajax, which recently closed the Village Arena due to low demand (single pad) has a recommendation in its 2022 Recreation & Parks Master Plan to consider the addition of a twin pad arena
to the Audley Recreation Centre (Phase 3 expansion) subject to demonstrated community need. This project is not currently within the Town’s 2024 to 2033 long-range capital forecast and it is currently not known if and when it will proceed. The Town of Whitby’s decision to add another ice pad to its inventory may also provide some additional capacity for the Central Durham area.
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demand, closure of one ice pad could be considered (likely Rink 1 as this is the oldest ice pad, has the smallest change rooms, and needs capital repair), which would limit both capital and operating expenses and offer the potential to use the
floor for non-ice activities. Note: City of Pickering staff do not recommended
proceeding with closure of any ice pads.
Option 2: Replace Don Beer Arena with a new Twin Pad
Two (2) arena pads may be built within approximately the next five years (by 2029), coupled with the closure and decommissioning of Don Beer Arena. With
Seaton being the continued focus of new residential development in Pickering,
consideration may be given to building a new twin pad facility in this area (e.g., Seaton Recreation Complex & Library site). Ideally, the new facility should be built with the ability to expand to four ice surfaces if the need arises. Alternately, an additional site may be required to accommodate a multi-pad arena to meet
longer-term needs (this would the subject of further study). Timing of this option
will need to be optimized so that significant renewal costs are avoided at Don Beer Arena and that the opening of the new facility coincides with the closure of Don Beer Arena to ice activities.
Each option has a different scale of cost and service implications, which need to be
considered in relation to how capital reinvestment addresses community needs in the
short, medium, and longer-terms. This analysis, combined with the information and findings from previous sections of this Arena Strategy, is intended to inform Council’s decision regarding future arena investment in Pickering.
The following table contains a summary of the key attributes of each option.
Table 18: Key Attributes of the Proposed Arena Provision Options to satisfy needs to 2034
Category
OPTION 1: Reinvest in Don Beer Arena OPTION 2: Replace Don Beer Arena with a Twin Pad
Service Level • 5 ice pads at 2 locations
•Average age of construction =
1982 (currently 42 years old)
•Don Beer Arena would remain ininventory
•4 ice pads at 2 locations
•Average age of construction =
~2004 (approx. 20 years old)
•Don Beer Arena would beconsidered surplus andpotentially sold (revenue offset)
Demand & Usage •Location of Don Beer Arenawould remain an impediment tooptimal use
•Removal of ice from 5th ice padcould be considered to realizecost efficiencies and potentialuse for non-ice activities
•Greater potential for year-rounduse
•New ice pads would be locatedcloser to growth areas andyounger families, increasingusage potential
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Category
OPTION 1: Reinvest in Don Beer Arena OPTION 2: Replace Don Beer Arena with a Twin Pad
Operational Considerations •Long-term lease of parking lotfrom Hydro One is essential tooperation at Don Beer Arena(increasing annual cost)
•Resolution needed to stormwatermanagement mitigation at DonBeer Arena (estimated cost of$3+ million)
•Unable to fully resolve severaloperational challenges (e.g., iceplant/resurfacer room, energy
use, etc.)
•Purpose-built design that meetsclient requirements
•Opportunity to include moderntechnologies within new ice pads(energy efficient)
•New arenas could be co-locatedwith other recreational amenities,creating economies of scale
•Lower initial maintenance costs
Capital Costs • Don Beer Arena: estimate of $20 million (next 10 years) in deferred maintenance
•Don Beer Arena has exceededits functional lifespan and willrequire significantly more
investment beyond this 10-yeartime period
•CHDRC: approximately $10.5million (next 10 years)
•$60 to $87 million (new twinpad), with lower capital renewalcosts in short-term
•Replacement facilities may needto draw on reserves/financing asnot be eligible for growth-related
funding
•CHDRC: approximately $10.5million (next 10 years)
Accessibility &
Design •Barrier-free accessibility issuesat Don Beer Arena are unlikelyto be fully resolved
•No ice pads within the currentinventory are NHL standard size
•Change rooms at Don Beer areunder-sized and do not meetpublic expectations
•2 new ice pads would have fully-accessible support spaces
•If possible, the site and buildingshould be designed to add 2additional rinks (to form a quadpad) through a future phase ofconstruction
•Ice pads would be designed toNHL-standards
•Change rooms and supportspaces would be designed tocontemporary standards
Location Considerations
In seeking a location for a new arena facility, it would not be prudent or cost-effective to
expand any of the City’s current arena facilities to address future needs – both sites are
fully subscribed and additional arenas would not be the highest priority for either site. Furthermore, the construction of a single pad arena is strongly discouraged due to financial, operational, and functional inefficiencies relative to multi-pad designs. Any future needs should be accommodated through twin or quad pad facilities.
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Consideration should also be given to the communities served by these facilities.
•CHDRC is conveniently located in the City Centre, offering good access to most
residents living within established areas of Pickering, as well as future residents
within the growing City Centre and Kingston Road areas. This location also offersexcellent access to Highway 401 for regional users and tournaments. With twoice pads at present, it is not a candidate for expansion but is ideally suited tomeet needs in South Pickering.
•The Don Beer Arena is located south of Highway 401 and east of Frenchman’sBay, in a light industrial and commercial area without ready access to publictransit. The immediate area has no nearby residential communities and is only1.5 kilometres away from the CHDRC as the crow flies (about 3.5-kilomtres if
driving). As noted throughout this report, the location of this facility compromisesits ability to serve as a community designation and its eventual closure should becarefully considered.
•The Seaton area is Pickering’s emerging residential community and currently
lacks any indoor recreation facilities. The planned Seaton Recreation Complex &
Library (in the area of Whitevale Road and Sideline 24) will be entering its designphase in 2024 and construction commencing in 2026. There is also a secondrecreationally designated site that could potentially house an arena, although it isnot likely to be ready for development during the desired timeframe. By 2042,
Seaton is projected to have 41,200 persons, growing to a build-out population of
70,000. Additionally, there are nearby areas such as Duffin Heights that couldalso benefit from such an arena in the vicinity. Arenas would be a good fit for thiscommunity as it continues to grow, including many young families.
•Longer-term, the new community in Northeast Pickering may also be a
candidate for arena provision. While a secondary plan for this area is just gettingunderway, residential development is many years away, which does not alignwith the timeframes being recommended for the Don Beer Arena replacement.
Capital Costs
In terms of capital cost, through its examination of other major capital projects, the City
has noted the dramatic rise of construction costs in recent years. At a high level, a twin pad arena expansion can be estimated to be up to 90,000 square feet in size (depending on the degree to which other common spaces are included in the base community centre build). Based on recent tendered prices of $675 to $775 per square
foot, this equates to a minimum construction cost of $60 million. An additional 25% may
be added for design and contingency fees.
There are several factors that could lead to cost increases beyond this figure, including phased construction, challenging sites (e.g., soil stabilization or remediation), co-located amenities, environmental objectives (e.g., geothermal heating, net zero energy, zero
carbon, etc.), the need for additional spectator seating or parking, specialized finishings,
and more.
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To inform future analysis, general design considerations for new arenas are identified below and Appendix A contains a typical arena facility program. These are to be confirmed through detailed design and in consultation with stakeholders.
General
•Follow the City of Pickering's Accessibility Plan to design facilities above andbeyond the minimum standards of the Ontario Building Code and continue todemonstrate leadership with facilities and services that are inclusive to all.
•Arenas are one of the highest energy costs for a municipality. The PickeringIntegrated Sustainable Design Standards, Version August 2022, does notspecifically address energy and emission limits for recreation or arena facilities.As a supplement to this standard, the Canada Green Building Council’s Zero
Carbon Building Standard for Design and Performance can provide guidance andspecific building performance metrics that will help the City respond to theClimate Emergency by reducing green house gas emissions and developingresilient public infrastructure for its communities.
Site
•Develop the site to strengthen or develop multimodal access to the facility topromote active lifestyles, reduce car and minimize parking requirements.
•Arena parking lots are often designed to accommodate the facility’s largest
events, leaving large expanses of pavement empty the majority of the time.
Consider parking lot configurations that allow partitioning the lot into differentzones which can support outdoor activities. For example, court sports havepotential to activate these areas, increasing the useability of the site.
•Maximize opportunities to develop outdoor amenities that include both active andpassive enjoyment. Outdoor spaces that are integrated with adjacent indoorareas expands program possibilities and enhances the quality of the facility withdirect access to nature and views.
Arena Facility
•Arenas can bring the community together for more reasons than sport orpractice. Including room for socializing in spaces that are part of the lobby and inthe middle of the action, rather than removed, often on the second floor abovethe change rooms, helps build community spirit.
•Consider each space of the facility in terms of daily and year-round use early, toensure maximum flexibility and spatial efficiency is integrated into the designfrom the beginning when changes do not cost much. For example, spacerequirements for smaller program like skate rentals, or storing rink dividers and
ice rink covers to big program like spectator seating, can significantly affect the
overall organization of the building.
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•Team rooms in older facilities often limit who can use the ice rink comfortably.Private showers and washrooms with enough space for those with assistive
devices to maneuver can make a big difference.
•Refrigeration systems that use natural refrigerants should be specified to futureproof the system from HFC phase down under the Kigali Agreement, anamendment to the Montreal Protocol. Safety standards and CSA requirements
for operation should also be part of this discussion.
•There are many systems that can help reduce the environmental impact of anarena while improving the overall comfort of the facility, including highperformance building envelope, heat recovery for spectators, electric ice re-
surfacers for improved indoor air quality and high efficiency air and humiditycontrol, to name a few. All possible measures should be reviewed by operationalstaff to determine best long-term solutions.
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6.0 Recommendations
Based on the preceding analysis, this study makes the following recommendations:
1.Update the participant-based target to 1 ice pad per 400 registered youthparticipants (residents ages 5 to 19) to support current and future ice surfaceneeds. This target applies to the arena supply and user base of arenas in both
Pickering and Ajax, which must be considered together due to the cross-
municipal boundaries of core user groups.
2.Align arena demand to supply based on a need for 4 indoor ice pads currentlyand 5 total ice pads by 2034. There is a surplus of ice at present; however,demand for ice sports will grow along with the population, gradually eroding this
surplus. Should programs be formed that attract new users to ice sports (or if
total registration changes in any substantial way), this forecast should berevisited. Pickering and Ajax should share equally in addressing these demands.
3.Begin planning to replace Don Beer Arena with two (2) new ice pads withinthe Seaton community no later than 2029 (next five years). The preferred site
is the Seaton Recreation Complex & Library. If the selected site cannot be
expanded to a quad pad arena through a future phase of construction, a secondsite may be required for a multi-pad arena beyond 2034, possibly in NortheastPickering.
4.Maintain at least 2 ice pads at Don Beer Arena until such time as the new
twin pad facility is open. In the interim, reduce capital spending at Don Beer
Arena unless necessary for structural or legislated safety requirements. Oncedeemed surplus, dispose of Don Beer Arena property and use proceeds to offsetfunding of replacement infrastructure. Consideration may also be given toremoving ice from Rink 1 to limit capital and operating expenses (non-ice
activities may be permitted, as appropriate) and/or limiting off-peak hours of
operation. Note: Although this recommendation may result in operationaland economic efficiencies, City of Pickering staff do not recommendremoving any ice pads from the inventory at this time.
5.Continue to operate two ice pads at the Chestnut Hill Developments
Recreation Complex for the foreseeable future. Capital requirements are
identified in the City’s long-term forecast, with further technical considerationswithin Section 4.1 of the Arena Strategy.
6.Continue to promote recreational skating and drop-in programs at theCHDRC and consider providing additional opportunities (e.g., Parent & Tot
Skating, Parent & Tot Stick/Puck, Ticket Ice, etc.) to improve participation levels,
accessible options for residents, and off-peak revenue enhancement. Expandprogramming to the new arena when built.
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7.Consider adjustments to the City’s Ice Allocation Policy and practices toensure that they reflect local demand, provide adequate ice time to prioritycategories, and generate efficiencies. The submission of annual registration
figures (including residency) by user groups should be strictly enforced as a
condition of approval. Further, the City is strongly encouraged to work with theTown of Ajax to ensure that allocation practices and amounts are consistentlyapplied across both jurisdictions to create a fair and transparent approach toallocation. Should demand for ice rentals grow over time, ice sport organizations
should be encouraged to make efficient use of non-prime time hours and to
adapt their programs to accommodate all participants, such as adjustments topractices, rosters, and scheduling.
8.Through future Recreation & Parks Plan updates, consider longer-term arenasneeds (post-2034), with a focus on growth areas such as Northeast Pickering as
well as a capital replacement strategy for the Chestnut Hill Developments
Recreation Complex arenas. It will be important for the City to secure sufficientblocks of land to support major recreation infrastructure within the NortheastPickering community.
City of Pickering Arena Strategy | March 2024 - Final Draft A-1
Appendix A: Typical Arena Facility Program
Note: The following program is considered a starting point for new arena design and construction on an undefined site. All figures are preliminary and should be confirmed through detailed design and in consultation with stakeholders.
Table 19: Typical Arena Facility Program
Program – Floor Area Breakdown Square Feet (sf)
Lobby / Entrance --
Public Area (includes area for warm viewing) 5,382
Reception 54
Admin 431
Washrooms - Universal 1,076
Elevator 97
Snack Bar 269
Vending 161
Skate Shop and Rentals 431
Arena --
Rink - NHL Size - 200 ft x 85 ft (includes apron, team, scorekeeper and penalty boxes) 23,142
Spectator Area 200 Seats 2,691
Spectator Area 500 Seats 5,920
Walking Track 7,535
Dressing Room (6 per sheet minimum / 8 preferred) 592
Showers and Washrooms (Private cubicles ) 431
Referee Room 334
First Aid 161
Warm-up Area 484
Media Box 538
Sound Lighting Controls 129
Meeting Room 538
Storage 2,153
Janitor Rooms 269
Equipment Room (all mechanical and electrical services, resurfacer garage, storage, snow melt pit, workshop) 8,611
Gross-up Area Add 25%